United States Department of Agriculture

Shoreline II Outfitter/Guide

Draft Environmental Impact Statement

Volume I

Forest Service

Alaska Region Tongass National Forest R10-MB-793a January 2016
Cover Photo: A photograph of Endicott Arm Glacier taken from an elevation of 1,115 feet. 

Commonly Used Acronyms & Abbreviations

ABOG Alaska Board of Game LAC Limits of Acceptable Change

ADEC Alaska Department of Environmental 

Conservation LUD Land Use Designation

ADF&G Alaska Department of Fish & Game LWCA Land and Water Conservation Act

AKDCBD Alaska State Division of Community 

and Business Development MIS Management Indicator Species

ANILCA Alaska National Interest Lands 

Conservation Act NAGPRA Native American Graves Protection and Repatriation Act

BBMT Brown Bear Management Team NEPA National Environmental Policy Act

BE Biological Evaluation NFMA National Forest Management Act

BMP Best Management Practice NHPA National Historic Preservation Act

CEQ Council on Environmental Quality NMFS National Marine Fisheries Service

CFR Code of Federal Regulations NOI Notice of Intent

DEIS Draft Environmental Impact 

Statement NRHP National Register of Historic Places

DNR Department of Natural Resources NAGPRA Native American Graves Protection 

and Repatriation Act

EPA Environmental Protection Agency ROS Recreation Opportunity Spectrum

FSM Forest Service Manual SHPO State Historic Preservation Officer

GIS Geographic Information System SOPA Schedule of Proposed Actions

GMU Game Management Unit TLRMP Tongass Land and Resource 

Management Plan

GUA Guide Use Area TTRA Tongass Timber Reform Act

IDT Interdisciplinary Team USDA United States Department of 

Agriculture

IRA Inventoried Roadless Area USFWS United States Fish and Wildlife 

Service


Shoreline II Outfitter/Guide

Draft Environmental Impact Statement

United States Department of Agriculture

Forest Service Alaska Region

______________________________________________________________________

Lead Agency: USDA Forest Service

Tongass National Forest

Responsible Official: M. Earl Stewart, Forest Supervisor

Tongass National Forest

Federal Building

648 Mission Street

Ketchikan, Alaska 99901-6593

(907) 225-3101

For Further 

Information Contact: Chad VanOrmer, Monument Ranger

Admiralty Island National Monument

8510 Mendenhall Loop Road

Juneau, AK 99801

(907) 586-8800

Carey Case, Team Leader

Petersburg Ranger District

12 North Nordic Drive

Petersburg, AK 99833

(907) 772-3871

Abstract

The Tongass National Forest is proposing new outfitter and guide allocations on the Tongass National 

Forest marine shoreline zone to be consistent with the 2008 Tongass Land and Resource Management 

Plan. There is a need to update the 2004 Shoreline Outfitter/Guide Record of Decision to better align with 

current market demand for non-motorized commercial recreation services. The proposed action would 

allocate a portion of the overall visitor capacity, up to 80,305 service days to outfitter and guide use. A 

service day is a day or any part of a day for which an outfitter or guide provides service to a client on 

National Forest System lands.

The Shoreline II Outfitter/Guide project area includes all areas used by non-motorized outfitter and guide 

activities that originate from the marine shoreline areas in the Admiralty National Monument and in the 

Hoonah, Juneau, and Sitka ranger districts (see Figure 1-1). In general, the project area extends 1⁄2 mile 
inland, with further inland extensions where specific outfitter and guide activities and locations are 

accessed from the shoreline (i.e., goat/deer hunting, canoe route/portage, freshwater fishing on 

anadromous and other fish-bearing streams and lakes, etc.).

This Draft Environmental Impact Statement (DEIS) describes four alternatives: no action (Alternative 1), 

proposed action (Alternative 2), lower allocation (Alternative 3), and higher allocation (Alternative 4). 

The alternatives represent different project designs intended to address issues raised by the public, while 

achieving to varying degrees the purpose and need for action. In addition, this DEIS discusses the 

estimated effects of implementing each alternative, and compares them in terms of meeting management 

objectives and estimated impacts to resources. The Forest Service’s preferred alternative is Alternative 2.

The project website, http://go.usa.gov/Pzi, is the preferred method for receiving comments. Click on the 

link, “Comment on Project”, to submit comments electronically and attach documents. 

Send Written 

Comments to: Carey Case, Team Leader

Petersburg Ranger District

12 North Nordic Drive

Petersburg, AK 99833

(907) 772-3871

Send Comments via comments-alaska-tongass-sitka@fs.fed.us

Email to:

When submitting comments, be sure to include the project name, “Shoreline II”; if submitting an 

electronic comment, use the project name in the subject line. Please provide your name, address, and a 

telephone number if available in your comments. Your name and contact information will become part of 

the public record. 
Summary 

Introduction ____________________________ 

The Shoreline II Outfitter/Guide project area (see Figure 1-1) encompasses lands in Admiralty Island 

National Monument, and Hoonah, Juneau, and Sitka ranger districts. The Shoreline II Outfitter/Guide 

DEIS proposes to allocate a portion of the visitor capacity of the project area to outfitter and guide use. 

The Shoreline II Outfitter/Guide Project Visitor Capacity Analysis (Appendix E) establishes the visitor 

capacity for the project area. Visitor capacity and the proposed allocations are described in terms of 

service days. A service day is a day or any part of a day for which an outfitter or guide provides service to 

a client on National Forest System lands. Service days were calculated and allocated to 48 geographic 

units defined as Shoreline II Outfitter/Guide use areas. This DEIS outlines potential outfitter/guide use 

levels (allocations) and provides a framework for managing outfitter/guide activities on all four 

management units. It does not establish or restrict use levels for unguided visitors. 

Description of the Project Area 

The project area includes all areas used for non-motorized outfitter/guide activities that originate from the 

marine shoreline areas in the Admiralty Island National Monument, and Hoonah, Juneau, and Sitka ranger 

districts (see Figure 1-1). In general, the project area extends 1⁄2 mile inland, with further extensions inland 

where specific outfitter/guide activities and locations are accessed from the shoreline (i.e., goat/deer 

hunting, canoe route/portage, freshwater fishing on anadromous and other fish-bearing streams and lakes, 

etc.). This includes a large portion of Baranof Island where goat and deer hunting areas extend inland.

Areasthat are not part of this analysis:

1. Private lands and other public lands and waters outside the jurisdiction of the Forest Service

(i.e., submerged islands, marine waters, Alaska State Parks).

2. The summer (peak) season at the Pack Creek Zoological Area in Admiralty Island National

Monument, which had a separate decision on March 21, 2011. The remaining seasons (fall, winter, and

spring) are included within this analysis.

3. Mitchell, Kanalku, and Favorite Bays in Admiralty Island National Monument are being

considered under a separate analysis with a decision expected in 2016.

4. The Kruzof Island Mud Bay and Eagle River motorized and non-motorized trail systems and the

Eagle River Road large group area, in the Sitka Ranger District, had a separate decision on April 21, 2015.

Purpose and Need for Action

The purpose of this action is to manage outfitters/guides on the Tongass National Forest Shoreline II 

project area consistent with the Forest Plan. A decision is needed to determine outfitter/guide use 

allocations for the project area. This is necessary to balance commercial and non-commercial recreational 

opportunities and to provide and maintain high quality recreation experiences without degrading forest 

resources.

This action is needed to meet Forest Plan goals and objectives for recreation and tourism, and to support 

local and regional economies. 
Summary 

Since the 2004 Shoreline Outfitter/Guide ROD was signed, demand for outfitter/guide services that 

originate from the marine shoreline has increased. The need for outfitter/guide services has expanded both 

in terms of number of visitors and the types of services being offered, and there is also continued demand 

for institutional outfitter/guide services (e.g., schools and therapy groups). There has been an increase in 

the fleet of small to mid-size cruise ships desiring to outfit/guide on the Tongass National Forest, and the 

demand for outfitted/guided big game hunting continues. Also, the traditionally low-use seasons (AprilMay; September-October) are seeing more use, with additional interest for outfitter/guide use in the 

winter season (January-March). Seven use areas are at 80 percent or more of their allocation during one or 

more seasons, and outfitters/guides are dispersing to areas traditionally less used. At some locations, 

outfitter/guide permit holders have requested to operate beyond the 1⁄2-mile zone. There is a need to 

replace the 2004 Shoreline Outfitter/Guide ROD to better align with current market demand for nonmotorized outfitter/guide services. 

Also, in 2008, the Forest Service updated the national directives for outfitter/guide services. These 

updates simplified procedures and clarified policies for priority use permits governing performance, 

inspections, and allocation of use. Additionally, data gathered recently through Forest Service monitoring 

and reported use by authorized outfitters/guides shows that some information used in the 2001 Visitor 

Capacity Analysis requires updating.

Proposed Action________________________ 

The following is a brief summary of the proposed action. All alternatives are presented in more detail in 

Chapter 2 of this DEIS. 

The Forest Service proposes to allocate a portion of the visitor capacity to outfitter/guide use. The 

Shoreline II Outfitter/Guide Project Visitor Capacity Analysis (Appendix F) establishes the visitor 

capacity for the project area. Visitor capacity and the proposed allocations are described in terms of 

service days. A service day is a day or any part of a day for which an outfitter or guide provides service to 

a client on NFS lands. Service days were calculated and allocated to 48 geographic units defined as use 

areas (Figure 1-1). 

The Forest Service is proposing to allocate up to 80,305 service days of the estimated total visitor 

capacity of 636,448 service days within the project area to outfitter/guide use (Table 2-2). These 

allocations are proposed for each use area, by season and alternative. The seasons are as follows: fall 

(September 15 to December 31), winter (January 1 to March14), early spring (March 15 to April 24), late 

spring (April 25 tp May 20 or 31), and summer (May 21 or June 1 to September 14). Tables 1 to 6 display 

the visitor capacity, the average outfitter and guide use (actual use)1

, the highest amount of outfitter/guide 

use, and the proposed allocations for each use area for each season.

Brown Bear Hunts 

The Forest Service proposes to allocate guided brown bear hunts in the Alaska Department of Fish and 

Game (ADF&G) Unit 4 game management unit (GMU) based on the recommended number of hunts in 

the Alaska Board of Game Brown Bear Management Strategy (BBMS 2000). The number of hunts will 

be allocated by ADF&G guide use area (GUA) to the spring and fall seasons proportionally based on the 

5-year average from actual use reports (2010-2014). For example, the BBMS recommends 10 hunts in the

1 Actual use data is the information that the outfitters/guides are required to report to the Forest Service at the end of 

every operating season. The actual use data provides specific information about the outfitters/guides activities such 

as the location of their activities, the number of clients hosted at each location, and the date the activity occurred.

Summary ii Shoreline II Outfitter/Guide DEIS 
Summary 

04-01ADF&G GUA (which contains Shoreline II Outfitter/Guide Use Areas 04-01A, B, and C). Based on

the 5-year average, 61percent of the hunts have occurred in the spring season and 39 percent have

occurred in the fall season. The Forest Service proposes to allocate 6 of the 10 hunts (61 percent) to the

spring season and 4 hunts (39 percent) to the fall season. Since Shoreline II Outfitter/Guide use areas are

smaller subunits of the ADF&G GUAs, the location of the hunts could occur across multiple Shoreline II

Outfitter/Guide use areas. The service days used for each hunt would be part of the total outfitter/guide

allocation proposed for the use area and season.

Large Group Areas 

Large group areas (LGAs) were designated in the 2004 Shoreline Outfitter/Guide ROD and were defined 

as areas where larger groups of 21-75 people may be allowed. Smaller groups were also allowed. The 

proposed action proposes to carry forward all of the LGAs previously designated with a few exceptions 

and additions (see Appendix B). Additionally, no more than 50 percent of the total outfitter/guide 

allocation for the use area, by season, would be allowed at a LGA, with exceptions in use areas with 

hardened LGA sites. At hardened LGA sites the authorized officer would have the flexibility to authorize 

more than 50 percent of that season’s use area allocation (not to exceed the total commercial allocation 

for the season). 

Adaptive Management Strategy

The Forest Service proposes to implement an Adaptive Management Strategy, which includes a 

monitoring and environmental review process, which would be applied to outfitter/guide allocations when 

any use area’s actual use data fell within the range of 80 percent to 110 percent of the allocation for any 

use season (early spring, late spring, summer, fall, winter) and there is a request for additional use from an 

outfitter/guide. The responsible official would have discretion whether or not to implement adaptive 

management, and outfitter/guides requesting use that implements adaptive management may be subject to 

additional fees under cost recovery regulations.

Wilderness 

The project area contains 20 use areas within six different congressionally designated wilderness areas. 

The Wilderness Act of 1964 prohibits commercial services, except for those that may be necessary to 

meet the recreational or other wilderness purposes of the area. The need for outfitter/guide services, 

which are primarily commercial in wilderness, has been documented in the Wilderness Commercial 

Needs Assessments (Appendix F).The extent necessary to meet the recreational or other wilderness 

purposes of the areas is represented in the proposed action. 

Outfitter/guide activities will be authorized by special use permits and may be temporary in nature (less 

than 1 year) or for multiple years. Outfitters/guides, who demonstrate satisfactory performance, may be 

issued priority use permits, for up to 10 years, in accordance with Forest Service Handbook 2709.14. 

The proposed action does not limit any use by the general public. 

Significant Issues 

Significant issues are used to formulate and design alternatives to the proposed action, prescribe 

mitigation measures, and analyze significant effects. Significant issues for the project have been identified 

through public and internal scoping. Similar issues are combined where appropriate. 

The following issues were identified as significant and are addressed through the development of two 

action alternatives:

Shoreline II Outfitter/Guide DEIS Summary iii 
Summary 

Issue # 1: Effects to Economic Opportunities

Issue 1 addresses concerns that the number of service days included in the proposed action (80,305) 

would not adequately provide for economic stability and growth within the region. 

Units of Measure:

• Number of service days allocated to outfitter/guide use

• Economic trends in tourism growth in Southeast Alaska.

Response: Alternative 4 was developed specifically to focus on supporting local and regional economies 

by recommending increased opportunities, through a higher allocation of service days (130,655), for 

outfitter/ guide businesses to operate in the shoreline zone. The higher allocation is based on visitor 

industry trends, which shows consistent and increasing growth within the region. 

Issue #2: Effects to Wilderness Areas and Effects of Commercial Uses 

on Non- commercial Visitors

Comments were received during public scoping expressing concern related to increased outfitter/guide

use in areas that historically have had low use. Several comments raised the concern of how 

outfitter/guide use has expanded, and that the Forest Service should do more to limit outfitter/guide 

operations so that “wild” places are not overcrowded.

The commenters referenced wilderness areas generally, as well as specific locations within, and outside of 

designated wilderness areas. Outside of wilderness, concerns were expressed about outfitter/guide use 

causing crowding, noise, and disturbance, particularly in locations popular with non-commercial visitors. 

Units of Measure: 

• Number of service days allocated to outfitter/guide use

• Forest Plan Recreation Opportunity Spectrum (ROSi) standards and guidelines for remoteness,

including outstanding opportunities for solitude, and social encounters

• Popular or high-valued local areas

Response: Alternative 3 addresses the issue of crowding and loss of solitude, and its effect on wilderness 

character by offering lower outfitter/guide allocations for use areas in designated wilderness and in 

remote areas.

Issue #3: Incompatible Commercial Uses 

Comments were received stating concerns about incompatible outfitter/guide uses (e.g., bear hunting and 

wildlife viewing/nature tour operators) that overlap in time and space, particularly during the spring and 

fall seasons, and result in conflict and diminished recreation experiences. 

Units of Measure: 

• Number of service days allocated to outfitter/guide use

• Types/location/timing of outfitter/guide recreation activities

Response: This issue is addressed through the varying allocations of service days in each action 

alternative, site specific design features, and through the separation of the spring season into “early” and 

“late” spring seasons common to all action alternatives. Essentially, “early spring” season would be 

March 15 to April 24, and the “late spring” season would be April 25 to May 20, or 31st. Alternative 

Summary iv Shoreline II Outfitter/Guide DEIS 
Summary 

allocations would be split proportionally based on the number of days in each “sub”-season. There would 

be reduced service days allocated in the popular late spring season, which should help address the issue 

raised. This issue is also addressed outside of this analysis through prospectus, permit stipulations, and 

permit administration.

Alternatives Considered in Detail

Alternative 1 – No Action

The No Action Alternative considered for this analysis is the 2004 Shoreline Outfitter/Guide ROD 

Selected Alternative, which was Alternative 5, with modifications. Under this alternative, allocations 

would remain the same as the 2004 levels. The 2004 Shoreline Outfitter/Guide EIS and ROD measured 

allocation in group days where a group of six people on shore in a single day equals one group day. The 

original allocation was for a maximum of 7,888 group days.

The unit of measure for the Shoreline II Outfitter/Guide analysis action alternatives is a service day. A 

service day is defined as one person on NFS lands for any period of time during one 24 hour period. Table 

2-1 represents the conversion from group days to service days for the no action alternative to provide a

meaningful comparison across all alternatives. It contains a total of 47,449 service days. The no action

alternative would continue the existing management practices of the outfitter/guide special uses

management program.

The no action alternative has a lower maximum number of service days than the action alternatives. 

Service days for some use areas may be higher than they are in some of the action alternatives, but the 

total number of service days allocated would be less than all other alternatives being considered in this 

analysis.

Under this alternative there would be no winter season as that was not part of the 2004 Shoreline 

Outfitter/Guide ROD. If selected, this alternative would use service days as the unit of measure rather 

than group days.

Alternative 2 – Proposed Action

The Forest Service is proposing to allocate up to 80,305 service days of the estimated total visitor 

capacity of 636,448 service days within the project area to outfitter /guide use (Table 2-2). These 

allocations are proposed by season and use area. Each allocation was based on factors such as historical 

outfitter/guide use, subsistence activities, proximity to communities, potential for resource impacts, and 

quality recreation experiences as prescribed by the Forest Plan. The use would be permitted by special use 

authorizations and may be temporary in nature (less than one year) or for multiple years. Outfitters/guides 

who have demonstrated satisfactory performance may be issued priority use permits, for up to 10 years, in 

accordance with Forest Service Handbook 2709.14. 

The proposed action provides the starting point for the IDT and helps focus public and other government 

agency comments. It was developed to balance commercial and non-commercial recreation opportunities 

and to provide and maintain high quality recreation experiences without degrading forest resources. 

This alternative was developed to support local and regional economies, and meet Forest Plan goals and 

objectives for recreation, and tourism, which are: 

• Provide for a range of recreation opportunities consistent with public demand, emphasizing locally

popular recreation places and those important to the tourism industry.

Shoreline II Outfitter/Guide DEIS Summary v 
Summary 

• Provide a diversity of opportunities for resource uses that contribute to the local and regional

economies of Southeast Alaska.

This alternative was developed by taking the 2004 Shoreline Outfitter/Guide allocations and adjusting 

them up or down based on factors such as historical commercial use, subsistence activities, proximity to 

communities, potential for resource impacts, and whether the area was popular with local users. It also 

proposes an outfitter/guide allocation for a winter use season. 

Alternative 3

Alternative 3 would allocate a total of 63,940 service days across the project area for use by 

outfitters/guides. It addresses the issue of loss of solitude and crowding by proposing lower outfitter/guide 

allocations for use areas in designated wilderness and in remote areas, areas that historically have had low 

outfitter and guide use. Concerns were expressed about the increasing overlap of uses incompatible with 

each other such as bear hunting and bear viewing and increased small cruise ship activity. Comments 

referred to remote areas within and outside of designated wilderness. The concern for crowding was not 

focused on areas designated for higher levels of use . This alternative only reduces allocation for the more 

remote use areas. It was developed with specific focus on emphasizing uncrowded social conditions 

across the use areas and seasons by reducing the proposed outfitter/guide allocations.

Alternative 4

This alternative allocates 130,655 service days to outfitter/guide use. It was calculated by applying a 5 

percent increase to the proposed action and compounded annually over a 10-year period. Alternative 4 

was developed to emphasize support for local and regional economies by increasing opportunities for 

outfitters and guides. 

A variety of data was reviewed to assess outfitter/guide markets. The conclusion drawn was that total 

visitation, cruise ship visitation, small cruise vessel capacity, and guided client’s use of the Tongass 

National Forest is increasing about 2 to 6 percent a year. Therefore, a 5 percent increase in the 

outfitter/guide allocation is warranted based on overall trends in the Southeast Alaska visitor industry and 

to accommodate a growing visitor industry. Increasing outfitter/guide allocations is aligned with the 

USDA’s transition strategy to encourage the diversification of the regional economy with particular focus 

on non-timber sectors. The increased number of service days compounded annually over a 10 year period 

at 5 percent would allow for economic growth resulting in greater economic opportunity in the region.

For a more detailed analysis of the alternatives and their development, see ‘Alternative Development’ and 

‘Alternatives Considered in Detail’ sections in Chapter 2 of this DEIS. 

Items Common to All Action Alternatives 

Outfitter/guide use would be authorized by special use permits to outfitter/guide service providers which 

may be temporary in nature (less than 1 year) or for multiple years. Outfitters/guides who have 

demonstrated satisfactory performance may be issued priority use permits, for up to 10 years, in 

accordance with Forest Service Handbook 2709.14. The selection of any alternative and allocation of 

service days does not restrict any use by the general public. 

The following items are common to all action alternatives. 

Big Game Guide Management

The Forest Service proposes to allocate guided brown bear hunts in the ADF&G GMU 4 based on the 

recommended number of hunts in the 2000 Southeast Alaska Unit 4 Brown Bear Management Strategy 

Summary vi Shoreline II Outfitter/Guide DEIS 
Summary 

(BBMS). The number of hunts will be allocated to each ADF&G Guide Use Area (GUA) in the spring 

and fall seasons proportionally based on the 5-year average from actual use reports (2010 to2014) (see 

Table 2-5). 

Large Group Areas 

It is proposed that no more than 50 percent of the total outfitter/guide allocation for a use area, by season, 

would be allowed at a large group area (LGA), with exceptions in use areas with hardened LGA sites. 

Hardened LGA sites are those with a natural or imported surface material, such as crushed rock or 

boardwalks, which greatly reduces soil disturbance from people walking within the site. At hardened LGA 

sites, the responsible official would have the flexibility to authorize more than 50 percent of that season’s 

use area allocation (not to exceed the total commercial allocation for the season). 

Adaptive Management

Adaptive management seeks to provide a structure to evaluate how to best meet the project’s short-term 

and long-term goals, and helps answer the basic question: Are our management actions having the 

predicted or desired effects?

How would adaptive management changes occur for this project?

Adaptive management would be applied to outfitter/guide allocations described in the proposed action 

and all alternatives and designed to meet the Shoreline II project’s purpose and need. More specifically, 

the adaptive management framework may be implemented when any UAs actual use data fall within the 

range of 80 percent to 110 percent of the allocation for any use season (early spring, late spring, summer, 

fall, winter) and there is a request for additional use from an outfitter guide. The authorized officer has 

discretion whether or not to implement adaptive management based on budget and workforce capacity. 

Outfitter guides requesting use the implements adaptive management may be subject to additional fees 

under cost recovery regulations. 

Actual use data is the information that the guides are required to report to the Forest Service at the end of 

every operating season. The actual use data provides specific information about the guides activities such 

as the location of their activities, the number of clients hosted at each location, and the date the activity 

occurred. Actual use data is entered into an outfitter/guide database managed by the Forest Service. The 

outfitter/guide database is used to track trends of actual use, determine specific locations that receive 

intensive use, provide information that determine whether new applications for authorized use will be 

approved, and influence where monitoring may be necessary. Concerns regarding inaccurate selfreporting of actual use data are alleviated by policy that directs the Forest Service to reduce authorized 

use to what is actually used and to charge a fee for what is authorized in the permit. An under-reporting 

of actual use will result in an individual guide’s authorization to be reduced; an over-reporting of use will 

require the guide to pay more for their permit.

The decision space for this adaptive management framework is 1) when any UA for any season that has 

between 80% and 110% of its allocation utilized in actual use and 2) whether or not to implement it 

considering agency capacity . To ensure adequate baseline information is collected, decisions based on the 

adaptive management framework will not be implemented until at least two years after the Record of 

Decision. The priority for collecting baseline information will be in those UAs and use seasons that 

currently have 75% to 80% of the allocation utilized in actual use.

While the Authorized Officer may take action in response to monitoring data collected ,the USFS could 

not, under any scenario, authorize more than 110% of the allocated use (the maximum number of days 

Shoreline II Outfitter/Guide DEIS Summary vii 
Summary 

evaluated under the selected alternative in the Selected Alternative) through adaptive management, unless 

additional National Environmental Policy Act (NEPA) compliance is completed

For more information about proposed adaptive management for this project, see Appendix D of this 

DEIS. 

Early and Late Spring Seasons

Discussion on the implications of extending the spring season, with it starting earlier, and exactly what 

action would prevent non-hunting outfitters/guides from using that “early” capacity in April and May, led

to the division of the spring season into “early” and “late” spring seasons for Alternatives 2, 3, and 4. The 

splitting of the spring season into two different timeframes is an effort to avoid compounding any 

potential conflicts with hunting outfitters/guides. Essentially, “early spring” is identified as March 15 to 

April 24 and “late spring” is April 25 to May 20 or May 31. Proposed alternative allocations were split

proportionally based on the number of days in each sub-season. This results in a reduction of service days

allocated in the more popular late spring season, which should help address the issue raised. 

It should be noted that Alternative 1, reflecting the use area allocation and seasons of the 2004 Shoreline 

Outfitter/Guide project, has only one season for spring. 

Project Design Features and Mitigation

Design features are specific requirements to avoid or minimize environmental impacts and must be 

complied with by law, regulation, or policy, such as, but not limited to, BMPs, Forest Plan standards and

guidelines, and standard operating procedures; they can also come from IDT recommendations, issues or

concerns from the public or other agencies, or scientific literature. 

Mitigation measures alleviate potential adverse effects from natural or human caused disturbances.

Mitigation includes doing any, or a combination of, the following: (a) avoiding the impact altogetherby 

not taking a certain action or parts of an action, (b) minimizing impacts by limiting the degree or

magnitude of the action and its implementation, (c) rectifying the impact by repairing, rehabilitating, or 

restoring the affected environment, (d) reducing or eliminating the impact over time by preservation and 

maintenance operations during the life of the action, and (e) compensating for the impact by replacing or 

providing substitute resources or environments (40 CFR 1508.20). 

Project-specific design features and mitigation measures are described in Appendices A, B, and C of this 

document. Design features, and required mitigation must be approved by the responsible official, as

outlined under the Decision Framework section in Chapter 1.

Project Monitoring and Evaluation 

Monitoring and evaluation provide the public and the Forest Service with information on the progress and 

results of implementing National Forest management decisions. Monitoring and evaluation comprise an

essential feedback mechanism to help be responsive to changing conditions. There are two distinct types 

of monitoring: implementation and effectiveness. Implementation monitoring determines if the permitted 

activities comply with adopted standards and guidelines: “Did we do what we said we would?” 

Effectiveness monitoring determines whether the standards and guidelines achieve desired results: “Were 

the results what we expected?”

Implementation and effectiveness monitoring will be accomplished through the administration of the 

special use permits issued as a result of this decision.

Summary viii Shoreline II Outfitter/Guide DEIS 
Summary 

Monitoring and mitigation related to adaptive management decisions are outlined in Appendices A, B, C, 

and D. 

Comparison of Alternatives 

Thissection includes a series of comparison tables for all of the alternatives. Numbers in parentheses are

negative). 

Shoreline II Outfitter/Guide DEIS Summary ix 
Summary 

Table 1: Service days by season for each alternative 

Alternative

Spring Allocation — Early Spring Allocation — 

Late

Spring Allocation

Total Summer Allocation Fall Allocation Winter Allocation Total

1 N/A N/A 8400 32,225 6,827 0 47,452

2 5,710 4,640 10,350 57,120 9,430 3,405 80,305

3 4,445 3,595 8,040 44,920 7,575 3,405 63,940

4 9,245 7,515 16,760 93,015 15,345 5,535 130,655

Table 2: Comparison of the action alternatives for the early spring season* 

Early Spring (March 15 to April 24)

Shoreline II se Areas

Estimated 

Visitor 

Capacity 

(service 

days) 

Average 

O/G 

Annual 

Use (2010

to2014)

Highest 

O/G 

Annual 

Use 

(2010

to2014)

Alt 1 - No 

Action (% 

of visitor 

capacity) 

Alt 1 - No 

Action 

(service 

days) 

Alt 2 (% of 

visitor 

capacity)

Alt 2 

(service 

days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

visitor 

capacity)

Alt 3 

(service 

days) 

Difference 

(Alt 3-Alt 1)

Alt 4 (% of 

visitor 

capacity)

Alt 4 

(service 

days) 

Difference 

(Alt 4-Alt 

1)

01-01 Skagway Area 992 0 0 0% 0 16% 160 160 12% 120 120 26% 260 260

01-02 Haines Area 165 0 0 0% 0 18% 30 30 12% 20 20 27% 45 45

01-03 East Chilkats 1,169 0 0 0% 0 12% 140 140 9% 105 105 20% 230 230

01-04A Berners Bay 533 0 0 0% 0 11% 60 60 8% 45 45 19% 100 100

01-04B N. Juneau

Coast 711 15 22 0% 0 15% 105 105 11% 80 80 23% 165 165

01-04C Taku Inlet 1,778 0 0 0% 0 7% 125 125 5% 95 95 12% 205 205

01-04D Slocum Inlet 178 0 0 0% 0 17% 30 30 17% 30 30 25% 45 45

01-05A Taku Harbor 198 0 0 0% 0 30% 60 60 23% 45 45 48% 95 95

01-05B Port

Snettisham 3,638 0 0 0% 0 6% 220 220 5% 165 165 10% 360 360

01-05C Windham Bay 2,232 3 6 0% 0 5% 115 115 5% 115 115 8% 185 185

01-05D Tracy Arm 533 0 0 0% 0 8% 40 40 6% 30 30 12% 65 65

01-05E Fords Terror 356 0 0 0% 0 11% 40 40 8% 30 30 17% 60 60

Summary x Shoreline II Outfitter/Guide DEIS 
Summary 

Early Spring (March 15 to April 24)

Shoreline II se Areas

Estimated 

Visitor 

Capacity 

(service 

days) 

Average 

O/G 

Annual 

Use (2010

to2014)

Highest 

O/G 

Annual 

Use 

(2010

to2014)

Alt 1 - No 

Action (% 

of visitor 

capacity) 

Alt 1 - No 

Action 

(service 

days) 

Alt 2 (% of 

visitor 

capacity)

Alt 2 

(service 

days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

visitor 

capacity)

Alt 3 

(service 

days) 

Difference 

(Alt 3-Alt 1)

Alt 4 (% of 

visitor 

capacity)

Alt 4 

(service 

days) 

Difference 

(Alt 4-Alt 

1)

01-05F Endicott Arm 1,346 5 7 0% 0 7% 95 95 6% 75 75 12% 155 155

04-01A Gut Bay,

Baranof 946 1 3 0% 0 6% 60 60 5% 45 45 10% 95 95

04-01B Port

Armstrong 1,656 0 0 0% 0 6% 105 105 5% 80 80 10% 165 165

04-01C Nelson Bay 527 0 0 0% 0 7% 35 35 5% 25 25 10% 55 55

04-02A Redoubt Lake 1,066 0 0 0% 0 15% 165 165 12% 125 125 25% 265 265

04-02B Whale Bay 1,893 2 10 0% 0 5% 95 95 4% 75 75 8% 160 160

04-02C Necker

Islands 1,066 0 0 0% 0 15% 165 165 12% 125 125 25% 265 265

04-02D SW Baranof 710 0 0 0% 0 15% 110 110 11% 80 80 25% 175 175

04-03 Sitka Area 6,548 51 150 0% 0 7% 460 460 5% 345 345 11% 750 750

04-04A Rodman Bay 611 0 0 0% 0 16% 95 95 16% 95 95 25% 150 150

04-04B Kelp Bay 1,757 5 8 0% 0 10% 180 180 8% 135 135 17% 290 290

04-04C Baranof

Warm Springs 176 0 0 0% 0 11% 20 20 9% 15 15 17% 30 30

04-05A SE Admiralty 403 2 5 0% 0 22% 90 90 17% 70 70 36% 145 145

04-06A Pybus Bay 621 1 4 0% 0 12% 75 75 9% 55 55 20% 125 125

04-06B Eliza Harbor 617 0 0 0% 0 15% 95 95 11% 70 70 25% 155 155

04-07A Gambier Bay 703 2 6 0% 0 6% 45 45 5% 35 35 10% 70 70

04-07B CrossAdmiralty Canoe Rte 886 0 0 0% 0 10% 90 90 8% 70 70 16% 145 145

04-08 NE Admiralty 1,406 0 0 0% 0 5% 70 70 4% 55 55 8% 115 115

04-09A Seymour

Canal 879 0 0 0% 0 10% 90 90 8% 70 70 16% 145 145

04-09B Pack Creek

Zoological Area 879 0 0 0% 0 10% 90 90 8% 70 70 16% 145 145

Shoreline II Outfitter/Guide DEIS Summary xi 
Summary 

Early Spring (March 15 to April 24)

Shoreline II se Areas

Estimated 

Visitor 

Capacity 

(service 

days) 

Average 

O/G 

Annual 

Use (2010

to2014)

Highest 

O/G 

Annual 

Use 

(2010

to2014)

Alt 1 - No 

Action (% 

of visitor 

capacity) 

Alt 1 - No 

Action 

(service 

days) 

Alt 2 (% of 

visitor 

capacity)

Alt 2 

(service 

days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

visitor 

capacity)

Alt 3 

(service 

days) 

Difference 

(Alt 3-Alt 1)

Alt 4 (% of 

visitor 

capacity)

Alt 4 

(service 

days) 

Difference 

(Alt 4-Alt 

1)

04-10A Greens Creek 176 0 0 0% 0 14% 25 25 11% 20 20 26% 45 45

04-10B NW Admiralty 1,933 0 1 0% 0 6% 120 120 5% 90 90 10% 190 190

04-11A Port Frederick 1,406 0 0 0% 0 10% 140 140 10% 140 140 16% 230 230

04-11B Freshwater

Bay 1,406 0 1 0% 0 10% 140 140 10% 140 140 16% 230 230

04-12 Tenakee Inlet 981 2 4 0% 0 10% 100 100 8% 75 75 16% 160 160

04-13 Peril Strait 2,460 0 0 0% 0 10% 250 250 8% 185 185 16% 405 405

04-14 Slocum Arm 660 0 0 0% 0 11% 70 70 8% 50 50 17% 110 110

04-15A Lisianski 1,778 0 0 0% 0 8% 145 145 6% 110 110 13% 235 235

04-15B West Yakobi

Island 1,600 0 0 0% 0 3% 50 50 3% 40 40 5% 80 80

04-15C Stag Bay 533 0 0 0% 0 4% 20 20 3% 15 15 6% 30 30

04-15D Portlock

Harbor 1,244 0 0 0% 0 4% 50 50 3% 40 40 7% 85 85

04-16A Point

Adolphus 711 0 0 0% 0 30% 215 215 23% 165 165 49% 350 350

04-16B North

Chichagof 431 0 0 0% 0 26% 110 110 20% 85 85 42% 180 180

04-16C Idaho Inlet 2,902 0 0 0% 0 15% 435 435 11% 330 330 24% 710 710

04-16D PLI

Wilderness 711 0 0 0% 0 6% 40 40 4% 30 30 9% 65 65

04-16E Port Althorp 2,952 0 0 0% 0 15% 445 445 11% 335 335 25% 725 725

Total 59,063 89 227 0 5,710 5,710 4,445 4,445 9,245 9,245

*Alternative 1 (no action) is not included since visitor capacity and service days are zero for all use areas.

Summary xii Shoreline II Outfitter/Guide DEIS 
Summary 

Table 3: Comparison of alternatives for the late spring season 

Late Spring (April 25 to May 20 or May 31)

Shoreline II Use 

Areas

Estimated 

visitor 

capacity 

(service 

days)

Average 

O/G 

Annual 

Use 

(2010 to 

2014)

Highest 

O/G 

Annual 

Use 

(2010 to 

2014)

Alt 1 - No 

Action 

(percent of 

visitor 

capacity)

Alt 1 - No 

Action 

(service 

days)

Alt 2 

(percent of 

visitor 

capacity)

Alt 2 

(service 

days)

Difference 

(Alt 2-Alt 

1)

Alt 3 

(percent of 

visitor 

capacity)

Alt 3 

(service 

days)

Difference 

(Alt 3-Alt 1)

Alt 4 

(percent of 

visitor 

capacity)

Alt 4 

(service 

days)

Difference 

(Alt 4-Alt 

1)

01-01 Skagway

Area 880 0 0 35 % 311 16 % 145 (166) 13 % 110 (201) 26 % 230 (81)

01-02 Haines Area 147 0 0 121 % 178 17 % 25 (153) 14 % 20 (158) 27 % 40 (138)

01-03 East Chilkats 1,037 13 26 30 % 311 12 % 125 (186) 9 % 95 (216) 20 % 205 (106)

01-04A Berners

Bay 473 9 22 52 % 244 12 % 55 (189) 8 % 40 (204) 18 % 85 (159)

01-04B N. Juneau

Coast 631 4 22 29 % 186 14 % 90 (96) 11 % 70 (116) 23 % 145 (41)

01-04C Taku Inlet 1,576 0 0 15 % 240 7 % 110 (130) 5 % 85 (155) 11 % 180 (60)

01-04D Slocum

Inlet 157 0 0 155 % 244 16 % 25 (219) 16 % 25 (219) 25 % 40 (204)

01-05A Taku

Harbor 175 25 36 106 % 186 29 % 50 (136) 23 % 40 (146) 46 % 80 (106)

01-05B Port

Snettisham 3,226 96 138 10 % 311 6 % 195 (116) 4 % 145 (166) 10 % 320 9 

01-05C Windham

Bay 1,980 87 184 13 % 260 5 % 100 (160) 5 % 100 (160) 8 % 165 (95)

01-05D Tracy Arm 473 3 8 12 % 56 7 % 35 (21) 5 % 25 (31) 12 % 55 (1) 

01-05E Fords

Terror 315 7 18 30 % 93 11 % 35 (58) 8 % 25 (68) 17 % 55 (38)

01-05F Endicott

Arm 1,194 57 118 11 % 131 7 % 85 (46) 5 % 65 (66) 12 % 140 9 

04-01A Gut Bay,

Baranof 839 44 92 11 % 89 7 % 55 (34) 5 % 40 (49) 10 % 85 (4) 

04-01B Port

Armstrong 1,469 36 99 12 % 171 6 % 90 (81) 5 % 70 (101) 10 % 145 (26)

Shoreline II Outfitter/Guide DEIS Summary - xiii- 
Summary 

Late Spring (April 25 to May 20 or May 31)

04-01C Nelson Bay 337 2 10 15% 50 7% 25 (25) 6% 20 (30) 10% 35 (15)

04-02A Redoubt

Lake 946 17 30 3% 32 15% 145 113 12% 110 78 25% 235 203 

04-02B Whale Bay 1,679 74 91 11% 179 5% 85 (94) 4% 65 (114) 8% 140 (39)

04-02C Necker

Islands 946 6 21 4% 35 15% 145 110 12% 110 75 25% 235 200 

04-02D SW

Baranof 630 9 16 22% 141 15% 95 (46) 12% 75 (66) 25% 155 14 

04-03 Sitka Area 5,807 86 174 11% 622 7% 410 (212) 5% 305 (317) 11% 665 43 

04-04A Rodman

Bay 541 5 8 27% 146 11% 60 (86) 11% 60 (86) 18% 100 (46)

04-04B Kelp Bay 1,124 206 269 18% 201 10% 115 (86) 8% 85 (116) 16% 185 (16)

04-04C Baranof

Warm Springs 112 0 0 25% 28 13% 15 (13) 9% 10 (18) 18% 20 (8) 

04-05A SE

Admiralty 257 58 85 80% 206 23% 60 (146) 18% 45 (161) 37% 95 (111)

04-06A Pybus Bay 397 48 90 31% 122 13% 50 (72) 9% 35 (87) 20% 80 (42)

04-06B Eliza

Harbor 394 46 51 38% 150 15% 60 (90) 11% 45 (105) 25% 100 (50)

04-07A Gambier

Bay 449 43 61 18% 79 7% 30 (49) 6% 25 (54) 10% 45 (34)

04-07B Cross-

Admiralty Canoe

Rte

566 12 28 17% 99 11% 60 (39) 8% 45 (54) 17% 95 (4) 

04-08 NE Admiralty 899 2 10 24% 218 5% 45 (173) 4% 35 (183) 8% 75 (143)

04-09A Seymour

Canal 562 16 23 33% 187 11% 60 (127) 8% 45 (142) 17% 95 (92)

04-09B Pack Creek

Zoological Area 562 5 19 0% 0 11% 60 60 8% 45 45 17% 95 95 

04-10A Greens

Creek 112 1 3 78% 87 18% 20 (67) 13% 15 (72) 27% 30 (57)

04-10B NW

Admiralty 1,236 48 68 14% 175 6% 75 (100) 5% 60 (115) 10% 125 (50)

04-11A Port 899 20 48 17% 157 10% 90 (67) 10% 90 (67) 17% 150 (7) 

Summary xiv Shoreline II Outfitter/Guide DEIS 
Summary 

Late Spring (April 25 to May 20 or May 31)

Frederick

04-11B Freshwater

Bay 899 18 54 19% 170 10% 90 (80) 10% 90 (80) 17% 150 (20)

04-12 Tenakee

Inlet 627 75 127 48% 304 10% 65 (239) 8% 50 (254) 17% 105 (199)

04-13 Peril Strait 1,573 101 143 38% 599 10% 160 (439) 8% 120 (479) 17% 260 (339)

04-14 Slocum Arm 585 40 47 43% 249 10% 60 (189) 8% 45 (204) 17% 100 (149)

04-15A Lisianski 1,576 5 10 11% 168 8% 130 (38) 6% 95 (73) 13% 210 42 

04-15B West

Yakobi Island 1,419 2 10 6% 89 3% 45 (44) 2% 35 (54) 5% 70 (19)

04-15C Stag Bay 473 5 10 6% 30 3% 15 (15) 3% 15 (15) 5% 25 (5) 

04-15D Portlock

Harbor 1,104 3 8 6% 69 4% 45 (24) 3% 35 (34) 7% 75 6 

04-16A Point

Adolphus 631 8 25 32% 200 30% 190 (10) 23% 145 (55) 49% 310 110 

04-16B North

Chichagof 383 25 58 52% 200 26% 100 (100) 20% 75 (125) 42% 160 (40)

04-16C Idaho Inlet 2,574 139 272 8% 200 15% 385 185 11% 290 90 24% 630 430 

04-16D PLI

Wilderness 631 2 5 12% 73 6% 35 (38) 4% 25 (48) 9% 55 (18)

04-16E Port Althorp 2,617 200 305 5% 127 15% 395 268 11% 295 168 24% 640 513 

Totals 48,119 1,708 2,942 8,403 4,640 -3,763 3,595 -4,808 7,515 -888

Shoreline II Outfitter/Guide DEIS Summary xv 
Summary 

Table 4: Comparison of alternatives for the summer season

Summer

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(service 

days) 

Average 

O/G 

Annual 

Use 

(2010

to2014)

Highest 

O/G 

Annual 

Use 

(2010

to2014)

Alt 1 - No 

Action (% 

of visitor 

capacity)

Alt 1 - No 

Action 

(service 

days) 

Alt 2 (% of 

visitor 

capacity)

Alt 2 

(service 

days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

visitor 

capacity)

Alt 3 

(service 

days) 

Difference 

(Alt 3-Alt 

1)

Alt 4 (% of 

visitor 

capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

01-01 Skagway Area 4,452 0 0 20% 890 16% 710 (180) 12% 535 (355) 26% 1,160 270 

01-02 Haines Area 1,272 0 0 22% 286 9% 115 (171) 7% 90 (196) 15% 190 (96)

01-03 East Chilkats 7,472 244 431 12% 890 10% 750 (140) 8% 565 (325) 16% 1,220 330 

01-04A Berners Bay 2,886 46 80 15% 445 12% 350 (95) 9% 265 (180) 20% 565 120 

01-04B N. Juneau

Coast 7,516 50 72 6% 458 6% 450 (8) 5% 340 (118) 10% 735 277 

01-04C Taku Inlet 11,533 9 24 8% 916 7% 810 (106) 5% 610 (306) 11% 1,315 399 

01-04D Slocum Inlet 617 138 264 72% 445 50% 310 (135) 50% 310 (135) 82% 505 60 

01-05A Taku Harbor 1,200 70 119 38% 458 24% 290 (168) 18% 220 (238) 39% 470 12 

01-05B Port

Snettisham 25,652 751 903 7% 1,781 12% 3,080 1,299 9% 2,310 529 20% 5,015 3,234 

01-05C Windham Bay 22,960 481 694 7% 1,637 9% 2,070 433 9% 2,070 433 15% 3,370 1,733 

01-05D Tracy Arm 2,162 47 77 8% 183 8% 175 (8) 6% 135 (48) 13% 285 102 

01-05E Fords Terror 1,526 143 176 10% 153 8% 125 (28) 6% 95 (58) 13% 200 47 

01-05F Endicott Arm 6,119 293 467 7% 427 8% 490 63 6% 370 (57) 13% 800 373 

04-01A Gut Bay,

Baranof 3,199 235 390 10% 311 13% 420 109 10% 315 4 21% 680 369 

04-01B Port

Armstrong 7,950 124 227 5% 401 8% 640 239 6% 480 79 13% 1,040 639 

04-01C Nelson Bay 3,182 4 17 9% 275 15% 480 205 11% 360 85 25% 780 505 

04-02A Redoubt Lake 14,602 258 420 1% 101 10% 1,460 1,359 7% 1,095 994 16% 2,380 2,279 

04-02B Whale Bay 5,829 151 177 10% 577 9% 525 (52) 7% 395 (182) 15% 855 278 

04-02C Necker

Islands 9,370 69 88 1% 99 15% 1,410 1,311 11% 1,060 961 24% 2,290 2,191 

Summary xvi Shoreline II Outfitter/Guide DEIS 
Summary 

Summer

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(service 

days) 

Average 

O/G 

Annual 

Use 

(2010

to2014)

Highest 

O/G 

Annual 

Use 

(2010

to2014)

Alt 1 - No 

Action (% 

of visitor 

capacity)

Alt 1 - No 

Action 

(service 

days) 

Alt 2 (% of 

visitor 

capacity)

Alt 2 

(service 

days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

visitor 

capacity)

Alt 3 

(service 

days) 

Difference 

(Alt 3-Alt 

1)

Alt 4 (% of 

visitor 

capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

04-02D SW Baranof 4,172 17 28 11% 453 15% 630 177 11% 475 22 24% 1,020 567 

04-03 Sitka Area 29,680 875 1224 12% 3,562 25% 7,420 3,858 19% 5,565 2,003 41% 12,090 8,528 

04-04A Rodman Bay 10,670 415 560 12% 1,264 25% 2,670 1,406 25% 2,670 1,406 41% 4,345 3,081 

04-04B Kelp Bay 26,512 2825 4151 4% 1,181 25% 6,630 5,449 19% 4,975 3,794 41% 10,800 9,619 

04-04C Baranof

Warm Springs 1,675 107 128 14% 232 14% 235 3 11% 180 (52) 23% 385 153 

04-05A SE Admiralty 2,425 211 284 19% 463 20% 485 22 15% 365 (98) 33% 790 327 

04-06A Pybus Bay 3,370 573 646 18% 590 20% 675 85 15% 510 (80) 33% 1,100 510 

04-06B Eliza Harbor 3,436 85 176 9% 295 9% 310 15 7% 235 (60) 15% 505 210 

04-07A Gambier Bay 2,765 77 133 14% 393 10% 280 (113) 8% 210 (183) 16% 450 57 

04-07B CrossAdmiralty Canoe Rte 3,036 80 114 16% 491 13% 395 (96) 10% 300 (191) 21% 645 154 

04-08 NE Admiralty 6,365 30 76 15% 983 5% 320 (663) 4% 240 (743) 8% 520 (463)

04-09A Seymour

Canal 3,978 21 83 30% 1,193 8% 320 (873) 6% 240 (953) 13% 520 (673)

04-09B Pack Creek

Zoological Area * * * * * * * * * * * * * * 

04-10A Greens Creek 999 190 398 59% 590 25% 250 (340) 19% 190 (400) 41% 410 (180)

04-10B NW Admiralty 5,148 25 38 11% 590 8% 415 (175) 6% 315 (275) 13% 675 85 

04-11A Port Frederick 7,582 100 195 12% 943 13% 990 47 13% 990 47 21% 1,605 662 

04-11B Freshwater

Bay 9,887 305 679 10% 1,022 20% 1,980 958 20% 1,980 958 33% 3,225 2,203 

04-12 Tenakee Inlet 9,954 86 187 8% 842 8% 800 (42) 6% 600 (242) 13% 1,300 458 

04-13 Peril Strait 20,218 696 902 5% 1,011 25% 5,055 4,044 19% 3,795 2,784 41% 8,235 7,224 

04-14 Slocum Arm 3,145 20 35 10% 305 9% 285 (20) 7% 215 (90) 15% 465 160 

04-15A Lisianski 4,755 22 67 13% 601 25% 1,190 589 19% 895 294 41% 1,940 1,339 

Shoreline II Outfitter/Guide DEIS Summary xvii 
Summary 

Summer

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(service 

days) 

Average 

O/G 

Annual 

Use 

(2010

to2014)

Highest 

O/G 

Annual 

Use 

(2010

to2014)

Alt 1 - No 

Action (% 

of visitor 

capacity)

Alt 1 - No 

Action 

(service 

days) 

Alt 2 (% of 

visitor 

capacity)

Alt 2 

(service 

days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

visitor 

capacity)

Alt 3 

(service 

days) 

Difference 

(Alt 3-Alt 

1)

Alt 4 (% of 

visitor 

capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

04-15B West Yakobi

Island 4,484 3 10 7% 318 7% 315 (3) 5% 240 (78) 11% 515 197 

04-15C Stag Bay 1,495 2 6 7% 106 7% 105 (1) 5% 80 (26) 12% 175 69 

04-15D Portlock

Harbor 3,487 50 116 7% 247 7% 245 (2) 5% 185 (62) 11% 400 153 

04-16A Point

Adolphus 3,650 453 823 26% 954 40% 1,460 506 30% 1,095 141 65% 2,380 1,426 

04-16B North

Chichagof 4,888 206 347 20% 954 20% 980 26 15% 735 (219) 33% 1,595 641 

04-16C Idaho Inlet 10,494 1188 1349 9% 954 29% 3,045 2,091 22% 2,285 1,331 47% 4,960 4,006 

04-16D PLI

Wilderness 1,769 81 176 20% 347 15% 265 (82) 11% 200 (147) 25% 435 88 

04-16E Port Althorp 9,423 917 1183 6% 607 50% 4,710 4,103 38% 3,535 2,928 81% 7,675 7,068 

Totals 338,961 12,773 18,740 32,224 57,120 24,896 44,920 12,696 93,015 60,791 

Table 5: Comparison of alternatives for the fall season

Fall

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use (2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 1)

Alt 3

(% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Differenc

e (Alt 3-

Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

01-01 Skagway

Area 2,592 0 0 6% 156 10% 260 104 8% 195 39 16% 425 269 

01-02 Haines Area 432 0 0 34% 148 13% 55 (93) 10% 45 (103) 20% 85 (63)

01-03 East 3,110 2 7 10% 312 5% 160 (152) 4% 120 (192) 8% 255 (57)

Summary xviii Shoreline II Outfitter/Guide DEIS 
Summary 

Fall

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use (2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 1)

Alt 3

(% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Differenc

e (Alt 3-

Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

Chilkats

01-04A Berners

Bay 1,037 0 0 15% 156 10% 105 (51) 8% 80 (76) 16% 170 14 

01-04B N. Juneau

Coast 1,382 16 80 11% 150 11% 155 5 9% 120 (30) 18% 250 100 

01-04C Taku Inlet 3,456 0 0 4% 150 5% 170 20 4% 130 (20) 8% 285 135 

01-04D Slocum

Inlet 346 0 0 45% 156 20% 70 (86) 20% 70 (86) 33% 115 (41)

01-05A Taku

Harbor 346 2 7 43% 150 16% 55 (95) 13% 45 (105) 26% 90 (60)

01-05B Port

Snettisham 3,456 6 10 9% 312 10% 350 38 8% 265 (47) 16% 565 253 

01-05C Windham

Bay 3,110 8 32 13% 402 10% 310 (92) 10% 310 (92) 16% 510 108 

01-05D Tracy Arm 1,168 56 67 4% 45 8% 95 50 6% 75 30 13% 155 110 

01-05E Fords

Terror 691 6 8 13% 89 10% 70 (19) 8% 55 (34) 17% 115 26 

01-05F Endicott

Arm 1,512 39 48 7% 105 7% 105 0 5% 80 (25) 12% 175 70 

04-01A Gut Bay,

Baranof 1,362 42 59 5% 69 5% 70 1 4% 55 (14) 8% 115 46 

04-01B Port

Armstrong 2,419 7 15 5% 109 5% 125 16 4% 95 (14) 8% 200 91 

04-01C Nelson

Bay 1,037 1 3 5% 55 6% 65 10 5% 50 (5) 10% 105 50 

04-02A Redoubt

Lake 2,074 3 11 1% 27 15% 315 288 12% 240 213 25% 510 483 

04-02B Whale Bay 2,576 29 71 4% 110 4% 105 (5) 3% 80 (30) 7% 175 65 

04-02C Necker 2,074 0 0 1% 29 15% 315 286 12% 240 211 25% 510 481 

Shoreline II Outfitter/Guide DEIS Summary xix 
Summary 

Fall

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use (2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 1)

Alt 3

(% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Differenc

e (Alt 3-

Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

Islands

04-02D SW

Baranof 2,419 2 5 4% 86 15% 365 279 11% 275 189 25% 595 509 

04-03 Sitka Area 13,187 117 325 4% 499 8% 1,055 556 6% 795 296 13% 1,720 1,221 

04-04A Rodman

Bay 1,382 9 22 7% 101 7% 100 (1) 7% 100 (1) 12% 160 59 

04-04B Kelp Bay 4,253 35 63 3% 139 5% 215 76 4% 165 26 8% 350 211 

04-04C Baranof

Warm Springs 346 7 12 11% 37 12% 40 3 9% 30 (7) 19% 65 28 

04-05A SE

Admiralty 1,728 37 53 14% 243 8% 140 (103) 6% 105 (138) 13% 225 (18)

04-06A Pybus Bay 1,382 30 56 6% 89 8% 110 21 6% 85 (4) 13% 180 91 

04-06B Eliza

Harbor 1,382 4 8 6% 89 8% 110 21 6% 85 (4) 13% 180 91 

04-07A Gambier

Bay 1,382 1 3 6% 79 8% 110 31 6% 85 6 13% 180 101 

04-07B CrossAdmiralty Canoe

Rte

1,728 0 0 6% 99 8% 140 41 6% 105 6 13% 225 126 

04-08 NE

Admiralty 2,765 0 0 8% 218 5% 140 (78) 4% 105 (113) 8% 225 7 

04-09A Seymour

Canal 1,728 15 28 11% 187 8% 140 (47) 6% 105 (82) 13% 225 38 

04-09B Pack

Creek Zoological

Area

1,728 19 27 0% 0 8% 140 140 6% 105 105 13% 225 225 

04-10A Greens

Creek 572 37 167 26% 150 25% 145 (5) 19% 110 (40) 41% 235 85 

04-10B NW

Admiralty 3,802 13 21 7% 262 5% 190 (72) 4% 145 (117) 8% 310 48 

Summary xx Shoreline II Outfitter/Guide DEIS 
Summary 

Fall

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use (2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 1)

Alt 3

(% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Differenc

e (Alt 3-

Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

04-11A Port

Frederick 2,765 6 23 6% 157 10% 280 123 10% 280 123 16% 450 293 

04-11B

Freshwater Bay 9,504 51 149 2% 170 10% 950 780 10% 950 780 16% 1,550 1,380 

04-12 Tenakee

Inlet 4,147 25 57 7% 304 6% 250 (54) 5% 190 (114) 10% 405 101 

04-13 Peril Strait 4,385 68 102 7% 324 7% 310 (14) 5% 235 (89) 11% 500 176 

04-14 Slocum Arm 2,419 31 47 5% 112 5% 120 8 4% 90 (22) 8% 200 88 

04-15A Lisianski 3,456 2 5 3% 88 8% 280 192 6% 210 122 13% 450 362 

04-15B West

Yakobi Island 3,110 4 10 2% 47 2% 65 18 2% 50 3 3% 105 58 

04-15C Stag Bay 1,037 2 4 2% 16 2% 20 4 1% 15 (1) 3% 35 19 

04-15D Portlock

Harbor 2,419 7 14 1% 36 5% 120 84 4% 90 54 8% 200 164 

04-16A Point

Adolphus 1,382 12 59 10% 140 21% 290 150 16% 220 80 34% 475 335 

04-16B North

Chichagof 1,728 5 18 8% 140 8% 140 0 6% 105 (35) 13% 225 85 

04-16C Idaho Inlet 2,074 13 8 7% 140 7% 145 5 5% 110 (30) 12% 240 100 

04-16D PLI

Wilderness 1,382 0 0 4% 51 4% 55 4 3% 45 (6) 7% 90 39 

04-16E Port

Althorp 2,074 0 0 4% 89 15% 310 221 11% 235 146 25% 510 421 

Totals 115,846 769 1,704 6,822 9,430 2,608 7,575 753 15,345 8,523 

Shoreline II Outfitter/Guide DEIS Summary xxi 
Summary

Table 6: Comparison of alternatives for the winter season

Winter

Shoreline II Use Areas

Estimated 

Visitor 

Capacity

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010- 

2014)

Highest 

O/G 

Annual 

Use 

(2010- 

2014)

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

01-01 Skagway Area 1,752 0 0 7% 125 7% 125 11% 200

01-02 Haines Area 292 0 0 7% 20 7% 20 12% 35

01-03 East Chilkats 2,102 0 0 7% 150 7% 150 11% 240

01-04A Berners Bay 701 0 0 7% 50 7% 50 11% 80

01-04B N. Juneau Coast 934 12 60 7% 65 7% 65 12% 110

01-04C Taku Inlet 2,336 0 0 7% 165 7% 165 12% 270

01-04D Slocum Inlet 234 0 0 9% 20 9% 20 13% 30

01-05A Taku Harbor 234 0 0 9% 20 9% 20 13% 30

01-05B Port Snettisham 2,336 0 0 7% 165 7% 165 12% 270

01-05C Windham Bay 2,102 0 0 7% 150 7% 150 11% 240

01-05D Tracy Arm 701 0 0 0% 0 0% 0 0% 0 

01-05E Fords Terror 467 0 0 0% 0 0% 0 0% 0 

01-05F Endicott Arm 1,635 0 0 0% 0 0% 0 0% 0 

04-01A Gut Bay, Baranof 1,168 0 0 0% 0 0% 0 0% 0 

04-01B Port Armstrong 1,635 0 0 7% 115 7% 115 12% 190

04-01C Nelson Bay 701 0 0 7% 50 7% 50 11% 80

04-02A Redoubt Lake 1,402 0 0 7% 100 7% 100 11% 160

04-02B Whale Bay 3,270 0 0 0% 0 0% 0 0% 0 

04-02C Necker Islands 1,402 0 0 7% 100 7% 100 11% 160

04-02D SW Baranof 1,635 0 0 7% 115 7% 115 12% 190

04-03 Sitka Area 7,709 20 64 7% 540 7% 540 11% 880

Summary xxii Shoreline II Outfitter/Guide DEIS 
Summary 

Winter

Shoreline II Use Areas

Estimated 

Visitor 

Capacity

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010- 

2014)

Highest 

O/G 

Annual 

Use 

(2010- 

2014)

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

04-04A Rodman Bay 934 0 0 7% 65 7% 65 12% 110

04-04B Kelp Bay 2,336 0 0 7% 165 7% 165 12% 270

04-04C Baranof Warm

Springs 234 0 0 9% 20 9% 20 13% 30

04-05A SE Admiralty 1,168 0 0 0% 0 0% 0 0% 0 

04-06A Pybus Bay 934 0 0 0% 0 0% 0 0% 0 

04-06B Eliza Harbor 934 0 0 0% 0 0% 0 0% 0 

04-07A Gambier Bay 934 0 0 0% 0 0% 0 0% 0 

04-07B Cross-Admiralty

Canoe Rte 1,168 0 0 0% 0 0% 0 0% 0 

04-08 NE Admiralty 1,869 0 0 0% 0 0% 0 0% 0 

04-09A Seymour Canal 1,168 0 0 0% 0 0% 0 0% 0 

04-09B Pack Creek

Zoological Area 1,168 0 0 0% 0 0% 0 0% 0 

04-10A Greens Creek 234 0 0 0% 0 0% 0 0% 0 

04-10B NW Admiralty 2,570 0 0 0% 0 0% 0 0% 0 

04-11A Port Frederick 1,869 1 3 7% 130 7% 130 12% 215

04-11B Freshwater Bay 1,869 0 0 7% 130 7% 130 12% 215

04-12 Tenakee Inlet 2,803 0 0 7% 200 7% 200 11% 320

04-13 Peril Strait 3,270 0 0 7% 230 7% 230 11% 375

04-14 Slocum Arm 1,635 0 0 0% 0 0% 0 0% 0 

04-15A Lisianski 2,336 0 0 7% 165 7% 165 12% 270

04-15B West Yakobi Island 2,102 0 0 0% 0 0% 0 0% 0 

04-15C Stag Bay 701 0 0 0% 0 0% 0 0% 0 

04-15D Portlock Harbor 1,635 0 0 0% 0 0% 0 0% 0 

Shoreline II Outfitter/Guide DEIS Summary xxiii 
Summary

Winter

Shoreline II Use Areas

Estimated 

Visitor 

Capacity

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010- 

2014)

Highest 

O/G 

Annual 

Use 

(2010- 

2014)

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

04-16A Point Adolphus 934 0 0 7% 65 7% 65 12% 110

04-16B North Chichagof 1,168 0 0 7% 85 7% 85 12% 135

04-16C Idaho Inlet 1,402 0 0 7% 100 7% 100 11% 160

04-16D PLI Wilderness 934 0 0 0% 0 0% 0 0% 0 

04-16E Port Althorp 1,402 0 0 7% 100 7% 100 11% 160

Totals 74,459 33 127 3,405 3,405 5,535

Summary xxiv Shoreline II Outfitter/Guide DEIS 
Table of Contents 

Summary ....................................................................................................................................................... i

Introduction ................................................................................................................................................ i

Description of the Project Area ............................................................................................................. i

Purpose and Need for Action ................................................................................................................ i

Proposed Action ........................................................................................................................................ ii

Brown Bear Hunts ................................................................................................................................ ii

Large Group Areas .............................................................................................................................. iii

Adaptive Management Strategy .......................................................................................................... iii

Wilderness ........................................................................................................................................... iii

Significant Issues ................................................................................................................................ iii

Alternatives Considered in Detail ........................................................................................................ v

Items Common to All Action Alternatives ......................................................................................... vi

Comparison of Alternatives ................................................................................................................ ix

Chapter 1. Purpose and Need ................................................................................................................... - 1 -

Introduction .......................................................................................................................................... - 1 -

Background .......................................................................................................................................... - 2 -

Description of Project Area .................................................................................................................. - 3 -

Goals and Objectives ........................................................................................................................... - 6 -

Purpose and Need for Action ............................................................................................................... - 6 -

Proposed Action ................................................................................................................................... - 7 -

Decision Framework ............................................................................................................................ - 8 -

Relationship to the Forest Plan and Related Management Direction ................................................... - 9 -

Public Involvement ............................................................................................................................ - 10 -

Significant Issues ............................................................................................................................... - 13 -

Agency Permits, Licenses, and Certifications .................................................................................... - 17 -

Applicable Laws and Executive Orders ............................................................................................. - 17 -

Availability of the Project Record ..................................................................................................... - 19 -

Map and Data Disclaimers ................................................................................................................. - 19 -

Chapter 2. Alternatives .......................................................................................................................... - 21 -

Introduction ........................................................................................................................................ - 21 -

Alternatives Considered, but Eliminated from Detailed Study .......................................................... - 21 -

Alternatives Considered in Detail ...................................................................................................... - 22 -

Alternative 1 – No Action .............................................................................................................. - 22 -
Table of Contents

Alternative 2—Proposed Action .................................................................................................... - 24 -

Alternative 3 .................................................................................................................................. - 26 -

Alternative 4 .................................................................................................................................. - 29 -

Items Common to All Action Alternatives ........................................................................................ - 31 -

Big Game Guide Management....................................................................................................... - 31 -

Large Group Areas ......................................................................................................................... - 33 -

Adaptive Management ................................................................................................................... - 34 -

Early and Late Spring Seasons ...................................................................................................... - 40 -

Project Design Features and Mitigation ......................................................................................... - 40 -

Project Monitoring and Evaluation ................................................................................................ - 41 -

Identification of the Preferred Alternative ......................................................................................... - 41 -

Comparison of Alternatives ............................................................................................................... - 41 -

Chapter 3. Environmental Consequences .............................................................................................. - 59 -

Introduction .................................................................................................................................... ....- 59 -

Analyzing Effects .......................................................................................................................... - 59 -

Other Resources ..................................................................................................................................- 61 -

Air Quality/Climate Change .......................................................................................................... - 61 -

Inventoried Roadless Areas ........................................................................................................... - 61 -

Land Ownership and Administration ............................................................................................. - 61 -

Analysis of the Alternatives by Resource ...........................................................................................- 61 -

Socioeconomics ............................................................................................................................. - 61 -

Wilderness ..................................................................................................................................... - 73 -

Recreation .................................................................................................................................... - 101 -

Heritage ........................................................................................................................................ - 144 -

Wildlife ........................................................................................................................................ - 164 -

Subsistence................................................................................................................................... - 202 -

Threatened, Endangered, Sensitive, and Rare Plants ................................................................... - 207 -

Invasive Plants ............................................................................................................................. - 214 -

Hydrology and Fisheries .............................................................................................................. - 220 -

Soils ............................................................................................................................................. - 239 -

Wetlands ...................................................................................................................................... - 241 -

Other Required Disclosures ......................................................................................................... - 243 -

Chapter 4. References and Lists ........................................................................................................... - 245 -

List of Preparers ............................................................................................................................... - 245 -

List of DEIS Recipients ................................................................................................................... - 248 -

Agencies....................................................................................................................................... - 248 -

Shoreline II Outfitter/Guide DEIS Summary i 
Table of Contents

Libraries ....................................................................................................................................... - 248 -

Media ........................................................................................................................................... - 248 -

Organizations and Businesses ...................................................................................................... - 248 -

Tribes, Tribal Corporations, City Governments, and Publicly Elected Officials ........................ - 249 -

Individuals (hardcopy) ................................................................................................................. - 249 -

Individuals (electronic) ................................................................................................................ - 249 -

References ........................................................................................................................................ - 250 -

Glossary ........................................................................................................................................... - 267 -

Index ................................................................................................................................................ - 277 -

List of Figures 

Figure 1-1. Shoreline II Outfitter/Guide Project Area Map. .................................................................... - 5 -

Figure 3-1. Wilderness areas in the Shoreline II project area. ............................................................... - 75 -

Figure 3-2. Percent of Outfitter/guide use by activity (2010-2014) ..................................................... - 110 -

Figure 3-3. Alternative 1 effects summary map, outfitter/guide allocation ......................................... - 118 -

Figure 3-4. Alternative 1 effects summary map, social encounters and remoteness indicators........... - 120 -

Figure 3-5. Alternative 1 effects summary map, popular or high-value local areas indicator ............. - 121 -

Figure3-6. Alternative 2 effects summary map, outfitter/guide allocation indicator ........................... - 123 -

Figure3-7. Alternative 2 effects summary map, social encounters and remoteness indicators ............ - 125 -

Figure 3-8. Alternative 2 effects summary map, popular or high-value local areas indicator ............. - 126 -

Figure 3-9. Alternative 3 effects summary map, outfitter/guide allocation indicator .......................... - 128 -

Figure 3-10. Alternative 3, effects summary map, social encounters and remoteness indicators ........ - 129 -

Figure 3-11. Alternative 3 effects summary map, popular or high-value local areas indicator ........... - 130 -

Figure 3-12. Alternative 4 effects summary map, outfitter/guide allocation indicator ........................ - 132 -

Figure 3-13. Alternative 4 effects summary map, social encounters and remoteness indicators ......... - 133 -

Figure 3-14. Alternative 4, effects summary map, popular or high-value local areas indicator .......... - 134 -

Summary ii Shoreline II Outfitter/Guide DEIS 
Table of Contents

List of Tables

Table 1: Service days by season for each alternative .................................................................................... x

Table 2: Comparison of the action alternatives for the early spring season ................................................. x

Table 3: Comparison of alternatives for the late spring season ................................................................. xiii

Table 4: Comparison of alternatives for the summer season ..................................................................... xvi

Table 5: Comparison of alternatives for the fall season ........................................................................... xviii

Table 6: Comparison of alternatives for the winter season ....................................................................... xxii

Table 1-1. Total acres of each Use Area. ................................................................................................. - 3 -

Table 1-2. Land Use Designation in the Project Area ........................................................................... - 10 -

Table 2-1: Service days by season and use area for Alternative 1, the No Action Alternative ............. - 23 -

Table 2-2: Service days by season and use area for Alternative 2, the Proposed Action ...................... - 25 -

Table 2-3: Service days by season and use area for Alternative 3 ......................................................... - 28 -

Table 2-4: Service days by season and use area for Alternative 4 ......................................................... - 30 -

Table 2-5. Proposed brown bear hunt allocation by group use area (GUA) and season ........................ - 32 -

Table 2-6. Phases of the Shoreline II Adaptive Management Process.................................................. - 35 - 

Table 2-7. Resource indicators and corresponding adaptive actions ..................................................... - 37 - 

Table 2-8: Alternative 1 Use areas where Adaptive Management strategy would be employed in first 2-5 

years of implementation ......................................................................................................................... - 39 -

Table 2-9: Alternative 2 use areas where Adaptive Management strategy would be employed in first 2-5 

years of implementation ......................................................................................................................... - 40 -

Table 2-10: Alternative 3 use areas where Adaptive Management strategy would be employed in first 2-5 

years of implementation ......................................................................................................................... - 40 -

Table 2-11: Alternative 4 use areas where Adaptive Management strategy would be employed in first 2-5 

years of implementation ......................................................................................................................... - 40 -

Table 2-12: Alternative totals by season in service days....................................................................... - 42 - 

Table 2-13: Comparison of alternatives in early spring season ............................................................. - 43 - 

Table 2-14: Comparison of alternatives for the late spring season........................................................ - 46 - 

Table 2-15: Comparison of alternatives for the summer season............................................................ - 49 - 

Table 2-16: Comparison of alternatives for the fall season ................................................................... - 52 - 

Table 2-17: Comparison of alternatives for the winter season............................................................... - 56 - 

Table 3.1: 2014 Community Populations .............................................................................................. - 63 -

Table 3-2: 1998-2014: Southeast Cruise Visitor Volume ...................................................................... - 67 -

Table 3.3: 2007-2013: Community Cruise Visitor Volume Percent Change, Large Vessel Only ......... - 67 -

Table 3-4: 2004-2013: Annual Maximum Passenger Capacity, Small Vessel Only ............................. - 68 -

Table 3-5: 2004-2014: Tongass National Forest Guided Clients ........................................................... - 69 -

Shoreline II Outfitter/Guide DEIS Summary iii 
Table of Contents

Table 3.6: Designated wilderness areas in the Shoreline II Outfitter/Guide EIS project area ............... - 76 -

Table 3-7: A Summary of how the six wilderness areas score for the indicators and the overall 

outstanding opportunities quality ........................................................................................................... - 87 -

Table 3-8: Other Features of Value Quality list of unique features integral to wilderness character ... - 88 -

Table 3-9: Summary of quality and wilderness character condition scores for the Shoreline II project 

wilderness areas ..................................................................................................................................... - 89 -

Table 3-10: Summary level of effect of an alternative on qualities and wilderness character ............... - 90 -

Table 3-11: Summary of all four indicators as a composite quality score for outstanding opportunities for 

solitude or a primitive and unconfined type of recreation ..................................................................... - 93 -

Table 3.12: Environmental consequences summary for the Tracy Arm - Ford's Terror and Chuck River 

Wilderness Areas ................................................................................................................................... - 94 -

Table 3-13: Environmental consequences summary for the South Baranof Wilderness Area...............- 95 -

Table 3-14: Environmental consequences summary for the Kootznoowoo Wilderness Area .............. - 96 -

Table 3-15: Environmental consequences summary for the West Chichagof-Yakobi Wilderness Area- 97 -

Table 3-16: Environmental consequences summary for the Pleasant, Lemesurier and Inian Islands 

Wilderness Areas ................................................................................................................................... - 97 -

Table 3-17: Forest Plan ROS prescription by LUD ............................................................................. - 102 -

Table 3-18: Resource indicators and units of measure for recreation resources .................................. - 104 -

Table 3-19: Units of measure and levels of effect ............................................................................... - 107 -

Table 3-20: Recreation facilities in the analysis area ........................................................................... - 111 -

Table 3-21: Public recreation cabins in the Shoreline II project area .................................................. - 112 -

Table 3-22: Shelter facilities in Shoreline II project area .................................................................... - 113 -

Table 3-23: Trails in the Shoreline II project area ............................................................................... - 114 -

Table 3-24: Popular or high-value local areas associated with past, present, or future projects.......... - 141 -

Table 3-25: General extent of Tlingit territories in the analysis area ................................................... - 147 -

Table 3-26: Previous heritage resource investigations in the analysis area ........................................ - 151 -

Table 3-27: LGAs that have significant sites and Native Place Names ...................................- 153 -

Table 3-28: Allocations by alternative sorted from lowest to =highest for each UA ......................... - 160 -

Table 3-29: GMU 4 Brown bear guided hunts for 2010-2014 compared to the Brown Bear Management 

Strategy recommendations (ADF&G 2000) ........................................................................................ - 170 -

Table 3-30: Threatened and endangered species managed by the USFWS that occur in Alaska ........ - 177 -

Table 3-31: Threatened and endangered species managed by the NMFS that occur in Alaska ......... - 178 -

Table 3-32: Steller sea lion critical habitat in the Analysis Area (50 CFR 226) ................................. - 183 -

Table 3-33: Alaska Region (R10) sensitive species ............................................................................. - 183 -

Table 3-34: Summary of determinations for threatened and endangered species for the Shoreline II 

Outfitter/Guide EIS Project .................................................................................................................. - 198 -

Table 3-35: Summary of determinations for sensitive species for the Shoreline II Outfitter/Guide EIS

Summary iv Shoreline II Outfitter/Guide DEIS 
Table of Contents

Project .................................................................................................................................................. - 200 -

Table 3-36: Subsistence resource use by communities with important deer harvest areas within the 

Shoreline Outfitter/Guide project analysis area ................................................................................... - 204 -

Table 3-37: Alaska Region sensitive plant and lichen species known or suspected to occur in the project 

area ....................................................................................................................................................... - 209 -

Table 3-38: Number of occurrences of sensitive plant species known to occur within the project area- 210 -

Table 3-39: Number of occurrences of rare plant species known to occur within the project area ..... - 211 -

Table 3-40: Number of occurrences of rare plant species known to occur within LGAs...............- 211 -

Table 3-41: Allocated service days by alternative and season in use areas with known sensitive plant 

occurrences .......................................................................................................................................... - 212 -

Table 3-42: Allocated service days by alternative and season in use areas with known rare plant 

occurrences .......................................................................................................................................... - 213 -

Table 3-43: High priority invasive plants that present a potential risk of new infestations or spread of 

existing infestations in the project area ................................................................................................ - 216 -

Table 3-44: Known high priority invasive infestations in the project area .......................................... - 216 -

Table 3-45: Medium priority invasive plants known to occur in the project area ............................... - 217 -

Table 3-46: Summary of invasive risk assessment of project alternatives .......................................... - 217 -

Table 3-47: Allocated service days by alternative in all use areas ....................................................... - 219 -

Table 3-48: Forest Plan Goals and Objectives applicable to all use areas and activities ..................... - 220 -

Table 3-49: Allocation days by season for each alternative................................................................ - 222 -

Table 3-50: Threatened and endangered fish species occurring on or adjacent to the Tongass National 

Forest from NMFS ............................................................................................................................... - 228 -

Table 3-51: Reported subsistence and personal use fisheries data from unpublished ADFG data ...... - 229 -

Table 3-52: Resource indicators and mitigation measures for potential concerns ............................... - 238 -

Shoreline II Outfitter/Guide DEIS Summary v 
Chapter 1

Purpose and Need

Chapter 1. Purpose and Need

Introduction____________________________

The Forest Service has prepared this Draft Environmental Impact Statement (DEIS) in compliance with the

National Environmental Policy Act (NEPA) and other relevant Federal and State laws and regulations. 

This DEIS is prepared according to the format established by the Council of Environmental Quality 

(CEQ) regulations implementing NEPA (40 CFR 1500-1508).

The Shoreline II Outfitter/Guide project area (see Figure 1-1) encompasses lands in Admiralty Island 

National Monument, and Hoonah, Juneau, and Sitka ranger districts. The Shoreline II Outfitter/Guide 

DEIS proposes to allocate a portion of the visitor capacity of the project area to outfitter and guide use. 

The Shoreline II Outfitter/Guide Project Visitor Capacity Analysis (Appendix E) establishes the visitor 

capacity for the project area. Visitor capacity and the proposed allocations are described in terms of 

service days. A service day is a day or any part of a day for which an outfitter or guide provides service to 

a client on National Forest System lands. Service days were calculated and allocated to 48 geographic 

units defined as Shoreline II Outfitter/Guide use areas. This DEIS outlines potential outfitter/guide use 

levels (allocations) and provides a framework for managing outfitter/guide activities on all four 

management units. It does not establish or restrict use levels for unguided visitors. 

In preparing this DEIS the Interdisciplinary Team (IDT) used a systematic approach for analyzing the 

environmental effects within the proposed project area. Planning was coordinated with the appropriate 

Federal, State, local agencies through correspondence and public meetings. Federally recognized tribes 

and a Alaska Native Claims Settlement Act (ANCSA) corporation were consulted.

This DEIS discloses the direct, indirect, and cumulative environmental impacts that would result from the

proposed action and alternatives. This document is organized as follows.

Chapter 1. Purpose and Need for Action

This chapter includes information on the background of the project, the purpose and need, and the agency’s

proposed action for achieving it. This section also details how the Forest Service informed the public of the

proposal and what issues were derived from public input.

Chapter 2. Alternatives, Including the Proposed Action

This chapter provides a more detailed description of the agency’s proposed action as well as alternative

methods for achieving the stated purpose. The alternatives were developed based on the significant issues

raised during public scoping. This chapter also provides summary tables of proposed activities and a

comparative summary of the environmental consequences associated with each alternative.

Chapter 3. Affected Environment and Environmental

Consequences

This chapter describesthe environmental effects, to various resources, of implementing the proposed 

action and alternatives.
Purpose and Need—Chapter 1

Chapter 4. List of Preparers, Distribution, Glossary,

References, Index

This chapter provides a list of preparers, the distribution list for the DEIS, a glossary, and references used in

DEIS development. The last section of this chapter is an index. 

Appendices

The appendices provide more detailed information to support the analyses presented in the DEIS.

Additional documentation, including more detailed analyses of project-area resources, may be found in 

the project planning record, available by request, from the Forest Supervisor’s Office in Sitka, Alaska. 

Other reference documents such as the 2008 Tongass National Forest Land and Resource Management 

Plan (Forest Plan) are available online, or at public libraries throughout Southeast Alaska as well as at the 

Forest Supervisor’s Office in Sitka, Alaska.

Background ____________________________ 

The Tongass National Forest provides unparalleled outdoor recreation opportunities. It encompasses 

nearly 17 million acres in the Southeast Alaska archipelago. Recreation opportunities range from 

dispersed and isolated wilderness settings to more developed urban facilities that accommodate large 

numbers of people. The majority of recreation visits generally occur in the more accessible developed 

facilities such as campgrounds, bear viewing areas and visitor centers. Local residents and visitors from 

around the world use and enjoy the Tongass National Forest as a place to recreate, explore and renew a 

sense of adventure.

Demand for recreation and tourism are increasing on the Tongass National Forest. Outfitter/guides and 

their ability to utilize the National Forest are an important component of the tourism economy in 

Southeast Alaska. Tourism is an important and continually growing economic driver in Southeast Alaska, 

creating employment and income opportunities throughout the region. 

Outfitters/ guides are important partners with the Forest Service because they provide equipment, 

services, and local knowledge and experience to Tongass National Forest visitors who prefer or need to be 

outfitted/guided. Outfitter/guide services provide one of the several ways forest visitors can access the 

Tongass National Forest.

The shoreline zone (mean high tide to 1⁄2 mile inland) of the Tongass National Forest is the interface 

between marine waters, the region’s version of roads and highways, and the uplands where National 

Forest lands begin. This zone and its use by outfitter/guides is the focus of this NEPA document, which 

serves to replace the 2004 Shoreline Outfitter/Guide Record of Decision (ROD). 

The Tongass National Forest will use this analysis to determine an allocation of service days dedicated to 

outfitter/guides through special use permits. The Tongass National Forest will consider non-motorized 

uses that originate from the marine shoreline zone that serve the public need for outfitter/guide services in 

ways that protect the natural and cultural resources of the area. 

This NEPA document would not change the way outfitters/ guides are permitted at any location. It does 

not designate which authorized activities would take place or designate who would receive outfitter /guide 

permits. The issuance of permits would continue to follow the laws, regulations and policies that allow 

outfitting/ guiding services on National Forest System (NFS) lands. 

Chapter 1 - 2 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need 

Unoutfitted/unguided visitors can continue to enjoy the Tongass National Forest recreation and 

subsistence opportunities as they do now. 

Description of Project Area _______________

The project area includes all areas used for non-motorized outfitter /guide activities that originate from

the marine shoreline areas in the Admiralty Island National Monument, and Hoonah, Juneau, and Sitka 

ranger districts (see Figure 1-1). In general, the project area extends 1⁄2 mile inland, with further 

extensions inland where specific outfitter /guide activities and locations are accessed from the shoreline 

(i.e. goat/deer hunting, canoe route/portage, freshwater fishing on anadromous and other fish-bearing 

streams and lakes, etc.). This includes a large portion of Baranof Island where goat and deer hunting areas 

extend inland.

The project area is divided into 48 geographical use areas (UA) (Table 1-1), encompassing approximately 

5,944,971 acres of NFS land. This translates to approximately 5,870 miles of shoreline. Of that land, 

approximately 2,899,350 acres are in the Shoreline II Outfitter/Guide project area. Appendix A provides 

detailed information for each UA, such as total acres and special features.

Areasthat are not part of this analysis:

1. Private lands and other public lands and waters outside the jurisdiction of the Forest Service (i.e.

submerged islands, marine waters, Alaska State Parks).

2. The summer (peak) season at the Pack Creek Zoological Area in Admiralty Island National

Monument, which had a separate decision on March 21, 2011. The remaining seasons (fall, winter,

and spring) are included within this analysis.

3. Mitchell, Kanalku, and Favorite Bays in Admiralty Island National Monument are being considered

under a separate analysis with a decision expected in 2016.

4. The Kruzof Island Mud Bay and Eagle River motorized and non-motorized trail systems and the Eagle

River Road large group area, in the Sitka Ranger District, had a separate decision on April 21, 2015.

Table 1-1. Total acres of each use area

Use Area General Location Acres Use

Area General Location Acres

01-01 Skagway Area 300,795 04-05A SE Admiralty 61,113

01-02 Haines Area 19,542 04-06A Pybus Bay 55,102

01-03 East Chilkats 361,104 04-06B Eliza Harbor 84,639

01-04A Berners Bay 235,343 04-07A Gambier Bay 119,063

01-04B N. Juneau Coast 49,651 04-07B Cross-Admiralty

Canoe Route 86,645

01-04C Taku Inlet 340,133 04-08 NE Admiralty 128,121

01-04D Slocum Inlet 17,211 04-09A Seymour Canal 87,673

01-05A Taku Harbor 19,749 04-09B Pack Creek

Zoological Area 65,367

01-05B Port Snettisham 365,841 04-10A Greens Creek 2,543

01-05C Windham Bay 162,229 04-10B NW Admiralty 243,554

01-05D Tracy Arm 330,724 04-11A Port Frederick 112,274

Shoreline II Outfitter/Guide DEIS Chapter 1 - 3 -
Purpose and Need—Chapter 1

Use Area General Location Acres Use

Area General Location Acres

01-05E Fords Terror 24,374 04-11B Freshwater Bay 97,053

01-05F Endicott Arm 367,087 04-12 Tenakee Inlet 314,938

04-01A Gut Bay, Baranof 94,186 04-13 Peril Strait 231,552

04-01B Port Armstrong 74,693 04-14 Slocum Arm 97,053

04-01C Nelson Bay 44,229 04-15A Lisianski 89,631

04-02A Redoubt Lake 45,155 04-15B West Yakobi Island 39,669

04-02B Whale Bay 222,466 04-15C Stag Bay 26,681

04-02C Necker Islands 6,481 04-15D Portlock Harbor 107,939

04-02D SW Baranof 50,534 04-16A Point Adolphus 8,888

04-03 Sitka Area 346,237 04-16B North Chichagof 64,447

04-04A Rodman Bay 75,540 04-16C Idaho Inlet 52,115

04-04B Kelp Bay 143,995 04-16D PLI Wilderness 23,105

04-04C Baranof Warm

Springs 28,963 04-16E Port Althorp 19,542

Chapter 1 - 4 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need

Figure 1-1. Shoreline II Outfitter/Guide project area 

map

Shoreline II Outfitter/Guide DEIS Chapter 1 - 5 -
Purpose and Need—Chapter 1

Goals and Objectives ____________________ 

The Shoreline II Outfitter/Guide analysis is designed to achieve Forest Plan goals and objectives and 

move the analysis area toward the desired conditions. The Forest Plan describes forest wide goals and 

objectives, as well as area-specific Land Use Designation (LUD) goals, objectives, and desired future 

conditions. This project contributes to the following forest-wide goals and objectives:

• Provide diverse opportunities for resource uses that contribute to the local and regional economies of

Southeast Alaska.

• Support a wide range of natural resource employment opportunities within Southeast Alaska’s

communities.

• Provide a range of recreation opportunities consistent with public demand, emphasizing locally

popular recreation places and those important to the tourism industry.

• Manage the Forest’s recreation settings in accordance with the Recreation Opportunity Spectrum

(ROS) standards and guidelines for each LUD.

• Provide for the continuation of subsistence uses by all federally qualified rural Alaskan residents.

• Manage designated Wilderness to maintain an enduring wilderness resource while providing the

public access and uses consistent with the Wilderness Act of 1964, the Alaska National Interest Lands

Conservation Act of 1980 (ANILCA) and the Tongass Timber Reform Act (TTRA).

Purpose and Need for Action _____________ 

The purpose of this action is to manage outfitters/ guides on the Tongass National Forest Shoreline II 

project area consistent with the Forest Plan. A decision is needed to determine outfitter /guide use 

allocations for the project area. This is necessary to balance commercial and non-commercial recreational 

opportunities and to provide and maintain high quality recreation experiences without degrading forest 

resources.

This action is needed to meet Forest Plan goals and objectives for recreation and tourism, and to support 

local and regional economies. 

Since the 2004 Shoreline Outfitter/Guide ROD was signed, demand for outfitter/guide services that 

originate from the marine shoreline has increased. The need for outfitter/guide services has expanded both 

in terms of number of visitors and the types of services being offered, and there is also continued demand 

for institutional outfitter/guide services (e.g., schools and therapy groups). There has been an increase in 

the fleet of small to mid-size cruise ships desiring to outfit/guide on the Tongass National Forest, and the 

demand for outfitted/guided big game hunting continues. Also, the traditionally low-use seasons (AprilMay; September-October) are seeing more use, with additional interest for outfitter/guide use in the 

winter season (January-March). Seven use areas are at 80 percent or more of their allocation during one or 

more seasons, and outfitters/guides are dispersing to areas traditionally less used. At some locations, 

outfitter/guide permit holders have requested to operate beyond the 1⁄2 -mile zone. There is a need to 

replace the 2004 Shoreline Outfitter/Guide ROD to better align with current market demand for nonmotorized outfitter/guide services. 

Also, in 2008, the Forest Service updated the national directives for outfitter/guide services. These 

updates simplified procedures and clarified policies for priority use permits governing performance, 

inspections, and allocation of use. Additionally, data gathered recently through Forest Service monitoring 

Chapter 1 - 6 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need 

and reported use by authorized outfitters/guides shows that some information used in the 2001 Visitor 

Capacity Analysis requires updating.

Proposed Action ________________________

The following is a brief summary of the proposed action. All alternatives are presented in more detail in

Chapter 2 of this DEIS. 

The Forest Service proposes to allocate a portion of the visitor capacity to outfitter /guide use. The 

Shoreline II Outfitter/Guide Project Visitor Capacity Analysis (Appendix F) establishes the visitor

capacity for the project area. Visitor capacity and the proposed allocations are described in terms of

service days. A service day is a day or any part of a day for which an outfitter or guide provides service to 

a client on NFS lands. Service days were calculated and allocated to 48 geographic units defined as use 

areas (Figure 1-1). 

The Forest Service is proposing to allocate up to 80,305 service days of the estimated total visitor

capacity of 636,448 service days within the project area to outfitter/ guide use (Table 2-2). These 

allocations are proposed for each use area, by season and alternative. The seasons are as follows: (fall

(September 15 to December 31), winter (January 1 to March 14), early spring (March 15 to April 24), late 

spring (April 25 to May 20, or 31), summer (May 21, or June 1to September 14). Tables 2-11 to 2-16 

display the visitor capacity, the average outfitter and guide use (actual use)1

, the highest amount of 

outfitter/guide use, and the proposed allocations for each use area for each season. 

Brown Bear Hunts

The Forest Service proposes to allocate guided brown bear hunts in the Alaska Department of Fish and 

Game (ADF&G) Unit 4 game management unit (GMU) based on the recommended number of hunts in 

the Alaska Board of Game Brown Bear Management Strategy (BBMS 2000). The number of hunts will 

be allocated by ADF&G Guide Use Area (GUA) to the spring and fall seasons proportionally based on the 

5-year average from actual use reports (2010-2014). For example, the BBMS recommends 10 hunts in the

04-01ADF&G GUA (which contains Shoreline II Outfitter/Guide Use Areas 04-01A, B, and C). Based on

the 5-year average, 61 percent of the hunts have occurred in the spring season and 39 percent have

occurred in the fall season. The Forest Service proposes to allocate 6 of the 10 hunts (61 percent) to the

spring season and 4 hunts (39 percent) to the fall season. Since Shoreline II Outfitter/Guide use areas are

smaller subunits of the ADF&G GUAs, the location of the hunts could occur across multiple Shoreline II

Outfitter/Guide use areas. The service days used for each hunt would be part of the total outfitter/guide

allocation proposed for the use area and season.

Large Group Areas 

Large group areas (LGAs) were designated in the 2004 Shoreline Outfitter/Guide ROD and were defined

as areas where larger groups of 21-75 people may be allowed. Smaller groups were also allowed. The 

proposed action proposes to carry forward all of the LGAs previously designated with a few exceptions 

and additions (see Appendix B). Additionally, no more than 50 percent of the total outfitter/guide

allocation for the use area, by season, would be allowed at a LGA, with exceptions in use areas with 

hardened LGA sites. At hardened LGA sites the authorized officer would have the flexibility to authorize 

1 Actual use data is the information that the outfitters/guides are required to report to the Forest Service at the end of every 

operating season. The actual use data provides specific information about the outfitters/guides activities such as the location of 

their activities, the number of clients hosted at each location, and the date the activity occurred.

Shoreline II Outfitter/Guide DEIS Chapter 1 - 7 -
Purpose and Need—Chapter 1

more than 50 percent of that season’s use area allocation (not to exceed the total commercial allocation 

for the season). 

Adaptive Management Strategy

The Forest Service proposes to implement an Adaptive Management Strategy, which includes a 

monitoring and environmental review process, which would be applied to outfitter/guide allocations when 

any use area’s actual use data fell within the range of 80 percent to 110 percent of the allocation for any 

use season (early spring, late spring, summer, fall, winter) and there is a request for additional use from an 

outfitter/guide. The responsible official would have discretion whether or not to implement adaptive 

management, and outfitter/guides requesting use that implements adaptive management may be subject to 

additional fees under cost recovery regulations.

Wilderness

The project area contains 20 use areas within six different congressionally designated wilderness areas. 

The Wilderness Act of 1964 prohibits commercial services, except for those that may be necessary to 

meet the recreational or other wilderness purposes of the area. The need for outfitter/guide services, 

which are primarily commercial in wilderness, has been documented in the Wilderness Commercial 

Needs Assessments (Appendix F).The extent necessary to meet the recreational or other wilderness 

purposes of the areas is represented in the proposed action. 

Outfitter/guide activities will be authorized by special use permits and may be temporary in nature (less 

than 1 year) or for multiple years. Outfitters/guides, who demonstrate satisfactory performance, may be 

issued priority use permits, for up to 10 years, in accordance with Forest Service Handbook 2709.14. 

The proposed action does not limit any use by the general public. 

Decision Framework_____________________ 

The responsible official for this proposal is the Forest Supervisor. The responsible official will evaluate 

the proposed action, alternatives, and environmental analysis; then considering public comment, will 

reach a decision in accordance with the purpose and need for this project. The type of non-motorized 

recreation use for any given use area will not be established by this document except in wilderness areas 

where the activity must be consistent with the findings of the Wilderness Commercial Needs Assessments 

(Appendix F). 

Given the purpose and need, the decision based on the Final Environmental Impact Statement (FEIS) will 

allocate the amount of outfitter/guide use for each use area and season within the project area. The 

allocation of outfitter/guide use will result in the issuance of outfitter/guide special use permits for 

businesses and organizations to occupy National Forest System lands for their activities within the project 

area. The decision, which will be documented in a Record of Decision (ROD), will: 

• Determine the amount of the service days allocated to outfitter/guides for each use area and season;

• Designate large group areas designed to accommodate large groups of visitors served by

outfitter/guides;

• Incorporate design features to reduce impacts to natural, social, and cultural resources to incorporate

into outfitter/guide special use permit stipulations;

Chapter 1 - 8 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need

• Adopt a Heritage Management Plan for large group areas (LGAs) to mitigate effects to historic

properties located near these sites;

• Prescribe required monitoring and reporting of resource impacts;

• Allocate guided brown bear hunts by use area and season (spring and fall) in the Alaska Department of

Fish and Game (ADF&G) game management unit 4 (Admiralty, Baranof, and Chichagof Islands)

based on the recommended number of hunts in the Alaska Board of Game Brown Bear Management

Strategy (2000);

• Determine whether to include the Big Game Guide Permit Administration Strategy; and

• Determine whether to include the Adaptive Management Strategy as part of the Selected Alternative.

Relationship to the Forest Plan and Related 

Management Direction ___________________ 

National forest planning takes place at several levels: national, regional, forest, and project. The Shoreline 

II Outfitter/Guide DEIS is a project-level analysis; its scope is confined to addressing the significant 

issues and possible environmental effects specifically related to this project. It does not attempt to address 

decisions made at higher levels. However, it does implement direction provided at those higher levels.

The National Forest Management Act (NFMA) addresses the management requirements for all national 

forest resources and provides guidance in the preparation of the regional and forest plans. The Forest Plan 

and associated ROD set forth direction for managing the land and resources of the Tongass National 

Forest. The Forest Plan is an extensive forest-level analysis. The Shoreline II Outfitter/Guide Project 

Analysis and subsequent implementation is designed to achieve the management direction of the Forest 

Plan as outlined in the purpose and need statement. 

Where appropriate, the Shoreline II Outfitter/Guide DEIS tiers to the Forest Plan Final Environmental 

Impact Statement as encouraged by 40 CFR 1502.20. 

The Forest Plan provides standards and guidelines for authorizing the services of qualified outfitters 

/guides to the public, where the need for the service has been identified and the use is compatible with the 

objectives and management direction of the affected LUD. The Forest Plan forest-wide standards and 

guidelines for recreation and tourism state in part:

“Generally allocate no more than one-half the appropriate capacity of the LUD to outfitter/guide operations. For 

specific locations, consider different allocations based on historical use, changing demand, spatial zoning, or 

temporal zoning.” (USDA Forest Service 2008, p. 4-46).

Land Use Designation (LUD)

The Forest Plan uses LUDs, which are broad geographic zones that emphasize various resource values 

and outputs, to guide management of the Tongass National Forest. Each LUD provides for a unique 

combination of activities, practices, and uses. The Shoreline II project area includes 16 LUDs (Table 1-2). 

Goals, objectives, and desired future conditions of all LUDs are described in detail in the 2008 Forest 

Plan (Chapter 3).

Shoreline II Outfitter/Guide DEIS Chapter 1 - 9 -
Purpose and Need—Chapter 1

Table 1-2. LUD acreages and percentages in the Shoreline II project area

LUD Acres Percentage

Wilderness 692,165 20.3

Semi-Remote Recreation 654,613 19.2

Wilderness Monument 511,531 15.0

Timber Production 413,238 12.1

Old Growth Habitat 373,126 11.0

Remote Recreation 256,092 7.5

LUD II 167,107 4.9

Modified Landscape 123,022 3.6

Scenic Viewshed 87,586 2.6

Special Interest Area 76,451 2.2

Municipal Watershed 23,596 0.7

Wild River 10,388 0.3

National Monument 7,908 0.2

Research Natural Area 4175 0.1

Wilderness Monument Rsrch Natural Area 3,675 0.1

Experimental Forest 17 >0.0

Grand Total 3,404,690 100.00

Goals, objectives, and desired future conditions of each LUD that apply to recreation and tourism are

described in detail in the Forest Plan. 

Public Involvement______________________ 

Public involvement is a key component of the planning process. The Council on Environmental Quality

(CEQ) defines scoping as “an early and open process for determining the scope of issues to be addressed 

and for identifying the significant issues related to a proposed action” (40 Code of Federal Regulations 

[CFR] 1501.7). Among other things, the scoping process is used to invite public participation, to help 

identify public issues, and to obtain public comment at various stages of the environmental analysis 

process.

Scoping is a process that continues until a decision is made.

The following is a summary of the letters, contacts, and meetings that have taken place during the planning 

process of this project:

• April 1, 2012: Project first listed in the 4th quarter of the Schedule of Proposed Actions (SOPA) for

the Tongass National Forest.

• February 22, 2012 and March 14, 2013: Public pre-scoping meetings held in Sitka, AK

• October 9 and November 11, 2012, and February 9, 2013: Public pre-scoping meetings held in

Angoon, AK

Chapter 1 - 10 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need

• March 14, 2013: Public pre-scoping meeting held in Juneau, AK

• April 10, 2013: Public pre-scoping meeting webinar in Port Alexander, AK

• October 18, 2013: Kootznoowoo Wilderness Commercial Needs Assessment completed.

• March 4, 2014: West Chicagof-Yakobi Wilderness Commercial Needs Assessment completed.

• March 7, 2014: South Baranof Wilderness Commercial Needs Assessment completed.

• March 10, 2014: Pleasant, Lemesurier, and Inian Islands Wilderness Needs Assessment completed.

• May 13, 2014: Tracy Arm-Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment

completed.

• June 14, 2014: A scoping letter was sent to over 300 individuals, tribal representatives, groups, and

other governmental entities. This scoping document explained the purpose and need for the project,

provided maps of the project, and solicited comments on the proposed action. The Forest received a

total of 12 responses from individuals, groups, tribes, State agencies, and other organizations.

Comments were received via email and letter. Copies of the letters and emails can be found in the

project record.

• June 16, 2014: A Notice of Intent (NOI) to prepare an EIS was published in the Federal Register (Vol.

79, No. 115).

• July 8 to 24, 2014: Open house scoping meetings were held in Sitka, Angoon, and online. The project

background, proposed action, and resource information were presented.

• June 25, 2015: An updated NOI reflecting the new IDT Leader and responsible official, the inclusion

of Adaptive Management, and an increase to the number of allocated service days in the proposed

action, due to rounding was published in the Federal Register (Vol. 80, No. 115). A total of 9

individuals and businesses/organizations commented on the project during this public scoping period.

Consultation with Federally Recognized Tribal

Governments and Alaska Native Claims Settlement Act 

(ANSCA) Corporation

Tribal consultation is an important part of heritage resource management. In Alaska, Indian Tribes, as 

defined by the National Historic Preservation Act, include federally recognized Tribes, as well as Village 

and Regional Corporations created by the Alaska Native Claims Settlement Act. The Shoreline II O/G EIS

project area is within the traditional territory of the Sitka Tribe of Alaska (STA), the Angoon Community 

Association (ACA), the Douglas Indian Association (DIA), Skagway Village (SV), the Chilkoot Indian 

Association (CIA), the Chilkat Indian Village (CIV), the Hoonah Indian Association (HIA), and 

Organized Village of Kake (OVK). ANCSA Village and Regional Corporations and Central Council of 

Tlingit and Haida (CCTH) have cultural affiliations within the project area and represent thousands of 

shareholders. 

The following federally recognized tribal governments and corporation have been consulted about this

project:

• Angoon Community Association

• Chilkat Indian Village

• Chilkoot Indian Association

Shoreline II Outfitter/Guide DEIS Chapter 1 - 11 -
Purpose and Need—Chapter 1

• Douglas Indian Association

• Hoonah Indian Association

• Sitka Tribe of Alaska

• Skagway Village

• Organized Village of Kake

• Sealaska Corporation

Between 2012 and 2015, the Forest Service sent NEPA project scoping letters to all the federally 

recognized Tribes including the Corporations within the Shoreline II O/G EIS project area. Additional, 

various (49) meetings were held during this time period with the abovementioned Tribal governments and 

corporation. Often the District Ranger participated in the consultation, as he or she has been delegated the 

authority to speak for the Forest Supervisor for this EIS. 

Meeting notes and Tribal comments are in the project record.

Other Agency Involvement

The Forest Service is committed to working closely with other agencies at all stages of planning and is 

responsible for coordinating project reviews by several other agencies. In some cases, the reviews are 

required because another agency has the authority to issue permits for a specific activity proposed by the 

Forest Service. In other cases, the reviews provide a time for dialogue with agencies responsible for 

ensuring that certain environmental conditions are met, such as clean water or healthy wildlife 

populations. This interagency communication helps provide information about area resources. This 

information is used to meet laws and regulations, develop alternatives and to identify ways to avoid or 

mitigate environmental effects. In many cases, an ongoing professional dialogue is maintained with these 

agencies throughout the planning process.

Alaska Department of Fish and Game 

The Forest Service and Alaska Department of Fish and Game (ADFG) have responsibilities to cooperate 

in the common stewardship of fish and wildlife and their habitats on NFS lands. 

The Forest Service met with ADF&G game management units (GMUs) 1 and 4 area biologists (August 

26, 2015, and October 8, 2015) to discuss a framework for managing big game hunting activities (see 

Chapter 2) within those GMUs that fall within the project area. These meetings are documented in the 

planning record for this project, and the Forest Service will continue to work with ADF&G to meet the 

requirements of each agency’s overlapping authorities for managing commercial big game activities. 

Discussions with ADF&G will be ongoing throughout the planning process for the Shoreline II 

Outfitter/Guide project.

Office of History and Archaeology 

Consultation with the Alaska State Historic Preservation Officer (SHPO), following standard 36 CFR 800 

procedures, is ongoing. The district level archeologist assigned to this project has determined that the 

activities proposed in all four alternatives for this DEIS will not have any adverse effect to historic 

properties, provided the stipulated conditions, which are described in Chapter 3, and Appendices A,B and 

C are implemented. This determination has been submitted to SHPO concurrence, and consultation will 

be completed between the Draft and Final EIS. 

Chapter 1 - 12 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need 

Any change in proposed outfitted/guided activities not currently listed in the permits that have the 

potential to disturb the ground will require a case-by-case Section 106 review by the project

archaeologist.

National Marine Fisheries Service 

The National Marine Fisheries Service (NMFS) has authority for fisheries management, species 

protection, and habitat conservation activities derived primarily form the Magnuson-Stevens Fishery

Conservation and Management Act, Marine Mammal Protection Act, and Endangered Species Act (ESA).

This includes all marine life, anadromous salmon, and Essential Fish Habitat (EFH). The Forest Service 

consults with NMFS concerning possible effects to these species.

A Biological Evaluation (BE) was prepared for the Shoreline II project consistent with USDA Forest 

Service threatened, endangered, and sensitive (TES) plant and animal species policy (FSM 2670). The BE 

analyzes the effects of all alternatives on all TES species and is part of the project record. It was 

determined that the project will most likely not adversely affect either the humpback whales or the

western Distinct Population Segment of the Stellar sea lion.

A Biological Assessment (BA) will be prepared and forwarded to the NMFS for concurrence as part of 

the Section 7 consultation process under the ESA. The BA will display the effects of the Selected

Alternative on threatened and endangered species. 

U.S. Environmental Protection Agency 

The U.S. Environmental Protection Agency (EPA) provides a general review in accordance with their

responsibilities under NEPA, Section 309 of the Clean Air Act, and Section 402 of the Clean Water Act.

U.S. Fish and Wildlife Service

The U.S. Fish and Wildlife Service (USFWS) has legal jurisdiction over a host of federal legal mandates 

including the Endangered Species Act, Federal Water Pollution Control Act (Clean Water Act), Migratory

Bird Treaty Act, Bald Eagle Act, and Rivers and Harbors Act. 

A BE was prepared for the Shoreline II project as required under Section 7 of the ESA, as amended, and 

the USDA Forest Service threatened, endangered, and sensitive plant and animal species policy (FSM

2670). It was determined that this project would not have an effect to any listed species managed by the 

USFWS.

Significant Issues _______________________

Significant issues are used to formulate and design alternatives to the proposed action, prescribe 

mitigation measures, and analyze significant effects. Significant issues for the project have been identified

through public and internal scoping. Similar issues are combined where appropriate.

Issues arise from a variety of sources, including:

• Concerns, and opportunities identified in the Forest Plan;

• Issues identified for similar projects (past actions);

• Issues raised by the IDT;

• Changes in public uses, attitudes, values or perceptions;

Shoreline II Outfitter/Guide DEIS Chapter 1 - 13 -
Purpose and Need—Chapter 1

• Issues raised by the public during scoping; and

• Comments from other government agencies.

The Forest Service then separated the issues into two groups: significant and non-significant issues. The 

CEQ NEPA regulations explain this delineation in Sec. 1501.7, “...identify and eliminate from detailed 

study the issues which are not significant or which have been covered by prior environmental review 

(Sec. 1506.3)....” A list of non-significant issues and reasons regarding their categorization as nonsignificant may be found in the project record. 

Significant issues were defined as those directly or indirectly caused by implementing the proposed 

action. Non-significant issues were identified as those:

1. Outside the scope of the proposed action;

2. Already decided by law, regulation, Forest Plan, or other higher level decision;

3. Irrelevant to the decision to be made; or

4. Conjectural and not supported by scientific or factual evidence.

Measures of the significance of an issue are based on the extent of the geographic distribution, the 

duration of the related effects, or the intensity of interest or resource conflict surrounding the issue. For an 

issue to be considered significant at the project level, it must be relevant to the specific project so that it 

can be appropriately addressed at the project level. Some issues have already been resolved through 

national level direction or analyzed at the Forest Plan level.

Once a significant issue is identified, measures are developed to analyze how each alternative responds to 

the issue. Measures are chosen that are quantitative (where possible), predictable, responsive to the issue, 

and linked to cause and effect relationships. These measures describe how the alternative affects the 

resource (s) at the heart of the issue. Monitoring and mitigation of the anticipated environmental effects of 

the project are also designed to be responsive to significant issues.

The following issues were identified as significant and are addressed through the development of two 

action alternatives.

Issue # 1: Effects to Economic Opportunities

Issue # 1 addresses concerns that the number of service days included in the proposed action (80,305) 

would not adequately provide for economic stability and growth within the region. 

Units of Measure 

• Number of service days allocated to outfitter/guide use

• Economic trends in tourism growth in Southeast Alaska.

Response: Alternative 4 was developed specifically to focus on supporting local and regional economies 

by recommending increased opportunities, through a higher allocation of service days (130,655), for 

outfitter/ guide businesses to operate in the shoreline zone. The higher allocation is based on visitor 

industry trends, which shows consistent and increasing growth within the region. 

Chapter 1 - 14 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need 

Issue #2: Effects to Wilderness Areas and Effects of

Commercial Uses on Non-Commercial Visitors

Comments were received during public scoping expressing concern related to increased outfitter/guide

use in areas that historically have had low use. Several comments raised the concern of how

outfitter/guide use has expanded, and that the Forest Service should do more to limit outfitter/guide 

operations so that “wild” places are not overcrowded.

The commenters referenced wilderness areas generally, as well as specific locations within, and outside of

designated wilderness areas. Outside of wilderness, concerns were expressed about outfitter/guide use

causing crowding, noise, and disturbance, particularly in locations popular with non-commercial visitors.

Units of Measure 

• Number of service days allocated to outfitter/guide use

• Forest Plan Recreation Opportunity Spectrum (ROS2) standards and guidelines for remoteness,

including outstanding opportunities for solitude, and social encounters

• Popular or high-valued local areas

Response: Alternative 3 addresses the issue of crowding and loss of solitude, and its effect on wilderness 

character by offering lower outfitter/guide allocations for use areas in designated wilderness and in 

remote areas.

Issue #3: Incompatible Commercial Uses 

Comments were received stating concerns about incompatible outfitter/guide uses (e.g., bear hunting and 

wildlife viewing/nature tour operators) that overlap in time and space, particularly during the spring and 

fall seasons, and result in conflict and diminished recreation experiences. 

Units of Measure 

• Number of service days allocated to outfitter/guide use

• Types/location/timing of outfitter/guide recreation activities.

Response: This issue is addressed through the varying allocations of service days in each action 

alternative, site-specific design features, and through the separation of the spring season into “early” and 

“late” spring seasons common to all action alternatives. Essentially, “early spring”- season would be 

March 15 to April 24, and the “late spring” season would be April 25 to May 20, or 31. Alternative 

2 The Recreation Opportunity Spectrum (ROS) describes a range of recreation settings and experience expectations organized 

into ‘ROS classes.’ These classes range from least developed (i.e., Primitive) settings and experience opportunities to most 

developed (i.e., Urban). The full range of ROS classes identified in the Forest Plan is: Primitive, Semi-Primitive Non-Motorized, 

Semi-Primitive Motorized, Roaded Natural, Roaded Modified, Rural, and Urban. Each ROS class includes standards and 

guidelines for a set of indicators. These classes and associated indicators are used in project analysis and recreation planning to 

describe the current condition across the landscape (“ROS inventory”) and to analyze effects of different alternatives. ROS 

classes are also identified in the management prescriptions of each LUD, providing direction for desired conditions. In this 

document, when the term “prescription” is used in relation to ROS, this refers to the ROS class(s) specifically identified in the 

LUD management prescription. In some cases, specific ROS classes are prescribed (e.g., Remote Recreation LUD is managed for 

Primitive ROS settings and experiences); in other cases, the LUD prescribes maintaining the existing ROS inventory condition 

until approved activities change the ROS setting(s) (e.g., Modified Landscape LUD). See Chapter 3, Recreation section for more 

detail, including a table of ROS prescriptions by LUD.

Shoreline II Outfitter/Guide DEIS Chapter 1 - 15 -
Purpose and Need—Chapter 1

allocations would be split proportionally based on the number of days in each “sub”-season. There would 

be reduced service days allocated in the popular late spring season, which should help address the issue 

raised. This issue is also addressed outside of this analysis through prospectus, permit stipulations, and 

permit administration.

Other Issues and Concerns

Each comment received during scoping was considered a potential issue, but some concerns and 

suggestions were not considered alternative-driving issues or their resolution was beyond the scope of this 

project. Others are addressed in the Forest Plan through protection and management of forest resources in 

the Standards and Guidelines and LUDs. Where possible, suggestions about the project were incorporated 

into the design of the proposed action and alternatives (see Chapter 2, and Appendices A and B). 

Additionally, some concerns and suggestions were considered but eliminated from detailed analysis for 

the reasons discussed in Chapter 2 (Alternatives Considered but Eliminated from Detailed Analysis).

The following issues were considered but determined not to be alternative-driving issues. The rationale 

for why these issues were determined to be non-significant is included below. As needed, resource effects 

related to these concerns are discussed in Chapter 3. 

Issue: Large Group Areas should be considered their own use 

areas 

Keeping large group areas contained within the broader Shoreline II Outfitter/Guide use area does not 

allow adequate allocation of service days for the rest of the use area. Large group areas should be 

separated out as their own use areas. 

Response: This issue is addressed by all action alternatives. The Forest Service would only allow up to 

50 percent of the total outfitter/guide allocation (by use area and season) to LGA use. This leaves at least 

half of the allocation available for non-LGA sites. All action alternatives address this issue.

Issue: Effects to Access to Wilderness Areas 

There are concerns that proposed allocations of outfitter/ guide service days within wilderness areas are 

too restrictive and do not meet the demand by the public for outfitter/guide services in these areas. 

Limiting outfitter/guide allocations would negatively impact the public’s access to these wilderness areas. 

Response: The Shoreline II Visitor Capacity Analysis begins to address this issue by employing a 

capacity formula for wilderness that is separate from other LUDs. This issue will be further addressed in

the effects analysis and through site specific mitigation measures.

Issue: The need to include Adaptive Management and/or Limits of 

Acceptable Change into the Shoreline II Outfitter/Guide EIS 

project design. 

Concerns were expressed that Adaptive Management and/or Limits of Acceptable Change processes 

should be used in place of the traditional capacity-allocation model for the Shoreline II EIS. 

Chapter 1 - 16 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need 

Response: Limits of Acceptable Change is an alternative considered but not carried forward for further 

analysis (see Chapter 2). Adaptive Management has been incorporated into this project as an item

common to all action alternatives (See Chapter 2, and Appendix D). 

Issue: The Development of a Wilderness Zoning SystemCommenters felt the Shoreline II Outfitter/Guide project should consider a multi-zone approach to 

wilderness management due to a diversity of geographical and social conditions in the northern Tongass 

National Forest. They felt the development of a zoning system would minimize total displacement of 

users, address the considerable variation in visitor standards for acceptable conditions within wilderness

and provide for different clientele groups a range of solitude opportunities and experiences to match 

different visitors’ desires.

Response: Developing an alternative for zoning wilderness areas is outside the scope of the project. The 

establishment of wilderness management zones requires consideration of the entire wilderness area. The 

project area for the Shoreline II Outfitter/Guide EIS only encompasses the general 1⁄2 mile zone from 

mean high tide inland, and further where specific non-motorized outfitter/ guide activities and locations

are accessed from the shoreline (i.e. goat/deer hunting, canoe route/portage, freshwater fishing on 

anadromous and other fish-bearing streams and lakes, etc.).

Agency Permits, Licenses, and Certifications

The Forest Service is not required to obtain permits or licenses to implement this project. However, 

outfitter/guide permit holders are responsible for obtaining necessary permits and licenses from Federal, 

State, and local agencies prior to commencing outfitting /guiding. Prior to outfitting/guiding on NFS 

lands, the Forest Service may require verification of current business or operating licenses such as U.S. 

Coast Guard License, State of Alaska Sport Fishing License, etc.

Prior to guiding on NFS lands, State requirements include:

• That commercial guides are State licensed with the Big Game Commercial Services Board

(http://www.commerce.state.ak.us/occ/pgui3.htm), regardless of where they operate;

• Any operator that uses State lands in the course of their commercial activities must either register

with the Alaska Department of Natural Resource, Division of Mining, Land and Water (DMLW)

under 11 AAAC 96.018, or obtain a permit under AS 38.05.850 or lease under AS 38.05.070. More

information on commercial day-use registration and DMLW authorizations maybe found at

http://www.dnr.alaska.gov/mlw/permit_lease/index.cfm;

• The operator must also comply with guide regulations issued by the Alaska Department of

Commerce, Community and Economic Development which address operations primarily occurring

on State tidelands and related incidental activities occurring on Federal uplands. Regulation details

can be found at

https://www.commerce.alaska.gov/web/portals/6/pub/tourismresearch/trainbusiness/b&b_requirement

s%202013.pdf.

Applicable Laws and Executive Orders _____ 

Shown below is a partial list of Federal laws and executive orders pertaining to project-specific planning 

and environmental analysis on Federal lands. While most pertain to all Federal lands, some of the laws 

are specific to Alaska.

Shoreline II Outfitter/Guide DEIS Chapter 1 - 17 -
Purpose and Need—Chapter 1

• Alaska Native Claims Settlement Act of 1971

• Alaska National Interest Lands Conservation Act of 1980

• American Indian Religious Freedom Act of 1978

• Archeological Resource Protection Act of 1980

• Bald and Golden Eagle Protection Act of 1940 (as amended)

• Cave Resource Protection Act of 1988

• Clean Air Act of 1970 (as amended)

• Clean Water Act of 1977 (as amended)

• Coastal Zone Management Act of 1972 (as amended)

• Endangered Species Act of 1973 (as amended)

• Executive Order 11593 (cultural resources)

• Executive Order 11988 (floodplains)

• Executive Order 11990 (wetlands)

• Executive Order 12898 (environmental justice)

• Executive Order 12962 (aquatic systems and recreational fisheries)

• Executive Order 13007 (Indian sacred sites)

• Executive Order 13112 (invasive species)

• Executive Order 13175 (government-to-government consultation)

• Executive Order 13443 (hunting heritage and wildlife conservation)

• Forest and Rangeland Renewable Resources Planning Act of 1974 (as amended)

• Magnuson-Stevens Fishery Conservation and Management Act of 1996

• Marine Mammal Protection Act of 1972

• Migratory Bird Treaty Act of 1918 (as amended)

• Multiple-Use Sustained-Yield Act of 1960

• Native American Graves Protection and Repatriation Act of 1990

• National Environmental Policy Act of 1969 (as amended)

• National Forest Management Act of 1976 (as amended)

• National Historic Preservation Act of 1966 (as amended)

• National Invasive Species Act of 1996

• National Transportation Policy (2001)

• Organic Act of 1897

• Rivers and Harbors Act of 1899

• Tongass Timber Reform Act of 1990

• Wild and Scenic Rivers Act of 1968 (as amended)

Chapter 1 - 18 - Shoreline II Outfitter/Guide DEIS 
Chapter 1—Purpose and Need

• Wilderness Act of 1964

Availability of the Project Record __________

An important consideration in preparing this DEIS is reduction of paperwork specified in 40 CFR 1500.4. 

This DEIS provides sufficient site-specific information to demonstrate a reasoned consideration of the 

environmental impacts of the alternatives and ways to mitigate the impacts. The project record contains 

supporting material that documents the NEPA process and analysis from the beginning of the project

through project implementation.

The project record is located at the Tongass National Forest Supervisor’s office in Sitka, Alaska.

Reference documents, such as the Forest Plan, ANILCA and the TTRA, are available for review at public 

libraries and Forest Service offices throughout Southeast Alaska, including the District Office in Sitka.

The Forest Plan and its FEIS are also available on CD-ROM and on the Internet 

(http://go.usa.gov/cQEnB; http://go.usa.gov/cQEnQ). The project record is also available electronically 

upon request. 

Map and Data Disclaimers ________________ 

All map products in this document are reproduced from geospatial information prepared by the Forest 

Service. Geographic information system (GIS) data and product accuracy may vary. Using GIS products 

for purposes other than those for which they were created may yield inaccurate or misleading results. 

The Forest Service reserves the right to correct, update, modify, or replace GIS products without 

notification. For more information, contact the Sitka Ranger District. 

In addition, the accuracy of calculations made from GIS layers varies with the quality of the mapping 

itself. Numbers presented in tables in this document may not sum correctly due to rounding. Other slight 

anomalies due to rounding may also occur. Therefore, all numbers calculated from GIS should be 

considered as approximate. 

Shoreline II Outfitter/Guide DEIS Chapter 1 - 19 -
Purpose and Need—Chapter 1

Chapter 1 - 20 - Shoreline II Outfitter/Guide DEIS 
Chapter 2

Alternatives

Chapter 2. Alternatives

Introduction ____________________________ 

This chapter describes and compares the alternatives considered for the Shoreline II Outfitter/Guide

project. It includes a description of each alternative considered. Tables of the alternatives, and service 

days allocated by use area (UA), are presented at the end of this chapter. This section also presents the 

alternatives in comparative form, defining the differences between each alternative and providing a clear 

basis for choice among options by the responsible official and the public. The information used to 

compare the alternatives is based on a combination of the design of each alternative and the 

environmental, social, and economic effects of implementing each alternative. 

Alternatives Considered, but Eliminated from 

Detailed Study__________________________ 

Federal agencies are required by NEPA to rigorously explore and objectively evaluate all reasonable 

alternatives, and to briefly discuss reasons for eliminating any alternatives that were not developed in 

detail (40 CFR 1502.14). Public comments received in response to the Proposed Action provided 

suggestions for alternative methods for achieving the purpose and need. Some of these alternatives may 

have been outside the scope of the project, some helped build alternatives considered in detail, or some 

were determined to be components that would cause unnecessary environmental harm. Therefore, the 

following alternatives were considered, but dismissed from detailed consideration for reasons summarized 

below: 

• Maximize Commercial Allocation: An alternative that allocates 50 percent of the total capacity to

outfitter/guide use regardless of site specific conditions and market demand was eliminated from

further analysis. The Forest Plan establishes a guideline that states “generally allocate no more than

one-half the appropriate capacity of the LUD to outfitter/guide operations. For specific locations,

consider different allocations based on historical use, changing demand, spatial zoning, or temporal

zoning.” This alternative was not considered because it:

• Is not based on known supply and demand and site specific resource conditions

• Exceeds the demand for outfitter/guide services,

• Will exceed use levels projected in the visitor capacity analysis when combined with public

users; and

• Creates negative impacts to local communities through the competition for resources and

recreational activities.

• Limits of Acceptable Change (LAC): The LAC system is a tool available for planners to establish

acceptable and appropriate resource and social conditions in recreation settings. It establishes through

a public planning process desired conditions of an area and then requires routine monitoring of

indicators and thresholds for acceptable (or unacceptable) change. If thresholds are exceeded, then

management actions will be instituted to bring impacts back to acceptable levels. The Visitor

Experience and Resource Protection (VERP) process is another similar planning tool often employed

by the National Park Service that establishes desired future conditions, indicators and thresholds.

Both the LAC and VERP avoid establishing recreation carrying capacity and allocations of

outfitter/guide and public use.
Chapter 2—Alternatives 

In contrast, the 2004 Shoreline Outfitter/Guide EIS and proposed Shoreline II Outfitter/Guide DEIS 

utilize a widely recognized planning framework that establishes a total visitor capacity of recreation 

users in terms of service days and then allocates a proportion of the total capacity to outfitter/guide 

uses and public recreation uses. Utilizing a LAC or VERP planning process was eliminated from 

further analysis because they require investments in time and money beyond the ability of the agency 

to successfully complete. 

The Shoreline II Outfitter/Guide ROD will replace the 2004 Shoreline Outfitter/Guide EIS/ROD. 

Redesigning the decision framework would make the agency’s knowledge gained since 2004 

nontransferable to the Shoreline II Outfitter/Guide DEIS. In addition, changing the planning 

framework would create confusion with the public, holders of special use permits and managers who 

are all familiar with the visitor capacity and allocation model. Finally, the Shoreline II Outfitter/Guide 

project area covers more than 5,000 miles of marine shoreline across three ranger districts and a 

national monument. Establishing desired future conditions, indicators and thresholds in a public 

process and then requiring routine monitoring would prove to be beyond the capacity of the agency to 

successfully complete. Instead the Shoreline II Outfitter/Guide project utilized the indicator, monitor, 

and threshold aspects of the LAC model and applied it to develop an Adaptive Management 

alternative. The Adaptive Management alternative keeps the capacity allocation model and develops 

monitoring indicators and thresholds that would be applied in targeted use areas where 80 percent or 

more the allocation is used by outfitter/guides. In part, the suggestion to use LAC helped develop the 

Adaptive Management alternative. 

Alternatives Considered in Detail __________ 

The Forest Service developed four alternatives, including the no action and proposed action alternatives. 

The no action represents the current allocation of outfitter/guide service days and provides a meaningful 

comparison of the action alternatives. The remaining action alternatives represent different ways of 

addressing the significant issues described in Chapter 1 and satisfying the purpose and need. The 

following section describes the alternatives considered in detail and describes three additional actions that 

include 1) Big Game Management 2) Large Group Areas 3) Adaptive Management, which could be 

incorporated into the final decision.

Each action alternative that is a part of the Shoreline II Outfitter/Guide project proposes to allocate a 

portion of the visitor capacity to outfitter/ guide use. The Shoreline II Outfitter/Guide Project Visitor 

Capacity Analysis (Appendix E) establishes the visitor capacity for the project area. Visitor capacity and 

the proposed allocations are described in terms of service days. A service day is a day or any part of a day 

for which an outfitter or guide provides service to a client on NFS lands. Service days were calculated and 

allocated to 48 geographic units defined as Shoreline II Outfitter/Guide Use Areas (Figure 1-1). 

Alternative 1 – No Action

The No Action Alternative considered for this analysis is the 2004 Shoreline Outfitter/Guide ROD 

Selected Alternative, which was Alternative 5, with modifications. Under this alternative, allocations 

would remain the same as the 2004 levels. The 2004 Shoreline Outfitter/Guide EIS and ROD measured 

allocation in group days where a group of six people on shore in a single day equals one group day. The 

original allocation was for a maximum of 7,888 group days. 

The unit of measure for the Shoreline II Outfitter/Guide analysis action alternatives is a service day. A 

service day is defined as one person on NFS lands for any period of time during one 24 hour period. Table 

2-1 represents the conversion from group days to service days for the No Action Alternative to provide a

Chapter 2 - 22 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2 

meaningful comparison across all alternatives. It contains a total of 47,452 service days. The no action 

alternative would continue the existing management practices of the outfitter/guide special uses 

management program. 

The no action alternative has a lower maximum number of service days than the action alternatives. 

Service days for some use areas may be higher than they are in some of the action alternatives, but the 

total number of service days allocated would be less than all other alternatives being considered in this 

analysis.

Under this alternative there would be no winter season as that was not part of the 2004 Shoreline 

Outfitter/Guide ROD. If selected, this alternative would use service days as the unit of measure rather 

than group days.

Table 2-1: Service days by season and use area for Alternative 1, the No Action Alternative

Shoreline II Use Areas No Action (Service

Days)--Spring

No Action (Service

Days)--Summer

No Action (Service

Days)--Fall Total

01-01 Skagway Area 311 890 156 1,357

01-02 Haines Area 178 286 148 612

01-03 East Chilkats 311 890 312 1,513

01-04A Berners Bay 244 445 156 845

01-04B N. Juneau Coast 186 458 150 794

01-04C Taku Inlet 240 916 150 1,306

01-04D Slocum Inlet 244 445 156 845

01-05A Taku Harbor 186 458 150 794

01-05B Port Snettisham 311 1,781 312 2,404

01-05C Windham Bay 260 1,637 402 2,299

01-05D Tracy Arm 56 183 45 284

01-05E Fords Terror 93 153 89 335

01-05F Endicott Arm 131 427 105 663

04-01A Gut Bay,

Baranof 89 311 69 469

04-01B Port Armstrong 171 401 109 681

04-01C Nelson Bay 50 275 55 380

04-02A Redoubt Lake 32 101 27 160

04-02B Whale Bay 179 577 110 866

04-02C Necker Islands 35 99 29 163

04-02D SW Baranof 141 453 86 680

04-03 Sitka Area 622 3,562 499 4,683

04-04A Rodman Bay 146 1,264 101 1,511

04-04B Kelp Bay 201 1,181 139 1,521

04-04C Baranof Warm

Springs 28 232 37 297

04-05A SW Admiralty 206 463 243 912

04-06A Pybus Bay 122 590 89 801

04-06B Eliza Harbor 150 295 89 534

04-07A Gambier Bay 79 393 79 551

Shoreline II Outfitter/Guide DEIS Chapter 2 - 23 -
Chapter 2—Alternatives 

Shoreline II Use Areas No Action (Service

Days)--Spring

No Action (Service

Days)--Summer

No Action (Service

Days)--Fall Total

04-07B Cross-Admiralty

Canoe Rte 99 491 99 689

04-08 NE Admiralty 218 983 218 1,419

04-09A Seymour Canal 187 1,193 187 1,567

04-09B Pack Creek

Zoological Area 0 0 0 0 

04-10A Greens Creek 87 590 150 827

04-10B NW Admiralty 175 590 262 1,027

04-11A Port Frederick 157 943 157 1,257

04-11B Freshwater Bay 170 1,022 170 1,362

04-12 Tenakee Inlet 304 842 304 1,450

04-13 Peril Strait 599 1,011 324 1,934

04-14 Slocum Arm 249 305 112 666

04-15A Lisianski 168 601 88 857

04-15B West Yakobi

Island 89 318 47 454

04-15C Stag Bay 30 106 16 152

04-15D Portlock Harbor 69 247 36 352

04-16A Point Adolphus 200 954 140 1,294

04-16B North Chichagof 200 954 140 1,294

04-16C Idaho Inlet 200 954 140 1,294

04-16D PLI Wilderness 73 347 51 471

04-16E Port Althorp 127 607 89 823

Totals 8,403 32,224 6,822 47,452

1 The 2004 Shoreline document did not include a winter season, so there is no winter season included in the no action

table. This table represents a conversion from an allocation of group days to a more comparable service day allocation.

Alternative 2—Proposed Action

The Forest Service is proposing to allocate up to 80,305 service days of the estimated total visitor 

capacity of 636,448 service days within the project area to outfitter /guide use (Table 2-2). These 

allocations are proposed by season and use area. Each allocation was based on factors such as historical 

outfitter/guide use, subsistence activities, proximity to communities, potential for resource impacts, and 

quality recreation experiences as prescribed by the Forest Plan. The use would be permitted by special use 

authorizations and may be temporary in nature (less than one year) or for multiple years. Outfitters/guides 

who have demonstrated satisfactory performance may be issued priority use permits, for up to 10 years, in 

accordance with Forest Service Handbook 2709.14. 

The proposed action provides the starting point for the IDT and helps focus public and other government 

agency comments. It was developed to balance commercial and non-commercial recreation opportunities 

and to provide and maintain high quality recreation experiences without degrading forest resources. 

This alternative was developed to support local and regional economies, and meet Forest Plan goals and 

objectives for recreation, and tourism, which are: 

Chapter 2 - 24 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2 

• Provide for a range of recreation opportunities consistent with public demand, emphasizing locally

popular recreation places and those important to the tourism industry.

• Provide a diversity of opportunities for resource uses that contribute to the local and regional

economies of Southeast Alaska.

This alternative was developed by taking the 2004 Shoreline Outfitter/Guide allocations and adjusting 

them up or down based on factors such as historical commercial use, subsistence activities, proximity to 

communities, potential for resource impacts, and whether the area was popular with local users. It also 

proposes an outfitter/guide allocation for a winter use season. 

Table 2-2: Service days by season and use area for Alternative 2, the Proposed Action

Shoreline II Use Areas

(Service

Days)-- 

Spring

Early

(Service

Days)-- 

Spring

Late

(Service

Days)-- 

Summer

(Service

Days)--Fall

(Service

Days)--

Winter

Total

01-01 Skagway Area 160 145 710 260 125 1,400

01-02 Haines Area 30 25 115 55 20 245

01-03 East Chilkats 140 125 750 160 150 1,325

01-04A Berners Bay 60 55 350 105 50 620

01-04B N. Juneau Coast 105 90 450 155 65 865

01-04C Taku Inlet 125 110 810 170 165 1,380

01-04D Slocum Inlet 30 25 310 70 20 455

01-05A Taku Harbor 60 50 290 55 20 475

01-05B Port Snettisham 220 195 3,080 350 165 4,010

01-05C Windham Bay 115 100 2,070 310 150 2,745

01-05D Tracy Arm 40 35 175 95 0 345

01-05E Fords Terror 40 35 125 70 0 270

01-05F Endicott Arm 95 85 490 105 0 775

04-01A Gut Bay, Baranof 60 55 420 70 0 605

04-01B Port Armstrong 105 90 640 125 115 1,075

04-01C Nelson Bay 35 25 480 65 50 655

04-02A Redoubt Lake 165 145 1,460 315 100 2,185

04-02B Whale Bay 95 85 525 105 0 810

04-02C Necker Islands 165 145 1,410 315 100 2,135

04-02D SW Baranof 110 95 630 365 115 1,315

04-03 Sitka Area 460 410 7,420 1,055 540 9,885

04-04A Rodman Bay 95 60 2,670 100 65 2,990

04-04B Kelp Bay 180 115 6,630 215 165 7,305

04-04C Baranof Warm Springs 20 15 235 40 20 330

04-05A SW Admiralty 90 60 485 140 0 775

04-06A Pybus Bay 75 50 675 110 0 910

04-06B Eliza Harbor 95 60 310 110 0 575

04-07A Gambier Bay 45 30 280 110 0 465

04-07B Cross-Admiralty Canoe

Rte 90 60 395 140 0 685

Shoreline II Outfitter/Guide DEIS Chapter 2 - 25 -
Chapter 2—Alternatives 

Shoreline II Use Areas

(Service

Days)-- 

Spring

Early

(Service

Days)-- 

Spring

Late

(Service

Days)-- 

Summer

(Service

Days)--Fall

(Service

Days)--

Winter

Total

04-08 NE Admiralty 70 45 320 140 0 575

04-09A Seymour Canal 90 60 320 140 0 610

04-09B Pack Creek Zoological

Area 90 60 0 140 0 290

04-10A Greens Creek 25 20 250 145 0 440

04-10B NW Admiralty 120 75 415 190 0 800

04-11A Port Frederick 140 90 990 280 130 1,630

04-11B Freshwater Bay 140 90 1,980 950 130 3,290

04-12 Tenakee Inlet 100 65 800 250 200 1,415

04-13 Peril Strait 250 160 5,055 310 230 6,005

04-14 Slocum Arm 70 60 285 120 0 535

04-15A Lisianski 145 130 1,190 280 165 1,910

04-15B West Yakobi Island 50 45 315 65 0 475

04-15C Stag Bay 20 15 105 20 0 160

04-15D Portlock Harbor 50 45 245 120 0 460

04-16A Point Adolphus 215 190 1,460 290 65 2,220

04-16B North Chichagof 110 100 980 140 85 1,415

04-16C Idaho Inlet 435 385 3,045 145 100 4,110

04-16D PLI Wilderness 40 35 265 55 0 395

04-16E Port Althorp 445 395 4,710 310 100 5,960

Totals 5,710 4,640 57,120 9,430 3,405 80,305

Alternative 3

Alternative 3 would allocate a total of 63,940 service days across the project area for use by Alternative 3 

would allocate a total of 63,940 service days across the project area for use by outfitters/guides. It 

addresses the issue of loss of solitude and crowding by proposing lower outfitter/guide allocations for use 

areas in designated wilderness and in remote areas, areas that historically have had low outfitter and guide 

use. 

Alternative 3 was developed in response to concerns expressed about the increasing overlap of uses 

incompatible with each other such as bear hunting and bear viewing and increased small cruise ship 

activity. Comments referred to remote areas within and outside of designated wilderness. The concern for 

crowding was not focused on areas designated for higher levels of use. This alternative only reduces 

allocation for the more remote use areas. It was developed with specific focus on emphasizing uncrowded 

social conditions across the use areas and seasons by reducing the proposed outfitter/guide allocations.

Forty-three of the Shoreline II Outfitter/Guide use areas feature predominantly Primitive or SemiPrimitive Recreation Opportunity Spectrum (ROS) classes as prescribed in the Forest Plan. These use 

areas are proposed to have lower outfitter/guide use allocations than the proposed action or Alternative 4. 

The remaining 5 use areas (gray shaded rows in Table 2-3), whose ROS class allows for more 

development, designate the same amount of outfitter/guide use as the proposed action. 

Chapter 2 - 26 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2 

To determine which use areas are more remote and support an expectation of being uncrowded, the Forest 

Service analyzed the Forest Plan LUDs comprising each use area. The Forest Service defined remote as 

those use areas where more than 50 percent of the area was comprised of LUDs with a prescription of 

Primitive or Semi-Primitive ROS classes. These ROS class settings describe a Remoteness Indicator of 

“no or infrequent sights and sounds of human activity are present” (Primitive) or “nearby sights or sounds 

of human activity are rare, but distant sights or sounds may occur” (Semi-primitive).

Semi-primitive ROS class Social Encounter settings describe that “during 80 percent of the primary use 

season, no other parties are visible from campsites”; the Primitive ROS class Social Encounter setting 

description states, “No other parties are within sight or sound of dispersed campsites or cabins.”

To determine the allocation for this alternative, monitoring data from 2012-2014 and outfitter and guide 

actual use reports from 2008-2012 were reviewed. The IDT examined primarily shoreline encounter data 

collected from field monitoring and found only some outer coast wilderness shoreline areas contain 

outstanding opportunities for solitude within the threshold set by the 2012 Tongass National Forest 

Wilderness Character Monitoring Plan. That Plan defines outstanding opportunities for solitude as 

locations where at least four out of five days monitored record no medium- or high-impact encounters 

(typically those encounters that are close, loud or otherwise disruptive of the observer’s wilderness 

experience).

Additionally, actual use reports were assessed to see how outfitters/guides and their clients used National 

Forest System lands quantitatively and temporally. The findings were that:

• Spring and fall outfitter/guide operations utilized less than 10 percent of the total capacity for all use

areas; summer outfitter/guide operations used less than 20 percent of the total capacity for most use

areas (all but 2).

• While 5 use areas have outfitter/guide use for more than half of the summer season calendar days,

most use areas are used by outfitter/guides for less than half of the summer season calendar days.

• All but 3 use areas are used by outfitter/guides for less than 30 percent of spring season calendar days.

• All but 1 use area is used by outfitter/guides for less than 20 percent of fall season calendar days.

These monitoring results and use data describe the context of why some members of the public feel that 

crowding is occurring. Limitations of the data include: 

• Insufficient coverage to adequately monitor encounters in all use areas, especially for 5 days during

all 3 seasons per the solitude monitoring protocol

• A lack of recorded noncommercial/public use on NFS lands

• A qualitative assessment: do certain types of use precipitate crowding concerns more than others, or

are certain areas more likely to feel crowded?

After reviewing the data, there was no clear method for applying a site-specific, data-driven reduction in 

each use area and season in response to public comments about proposed levels being too high or to 

ensure there is no overcrowding. However developing an alternative that applies a general reduction in 

onshore outfitter/guide use is projected to: 

• Help maintain uncrowded conditions in areas currently uncongested;

• Help reduce existing crowding in popular areas;

• Align recreation opportunities in the forest with Forest Plan ROS setting indicators;

Shoreline II Outfitter/Guide DEIS Chapter 2 - 27 -
Chapter 2—Alternatives 

• Maintain or reestablish opportunities for solitude along shoreline zones within designated wilderness;

and

• Provide additional space for public users.

This alternative applies a 25 percent reduction of outfitter/guide allocation from the proposed action 

(Alternative 2) except the winter season (Table 2-3). The IDT analyzed various proportions for reducing 

the outfitter/guide allocation and found this option best addressed the issues while still meeting the 

purpose and need. The winter season was not reduced compared to the proposed action because the 

allocations were already set low and crowding during this season has not been a concern. 

Table 2-3: Service days by season and use area for Alternative 3

Shoreline II Use Areas

(Service

Days)-- 

Spring

Early

(Service

Days)-- 

Spring

Late

(Service

Days)-- 

Summer

(Service

Days)--Fall

(Service

Days)--

Winter

Total

01-01 Skagway Area 120 110 535 195 125 1,085

01-02 Haines Area 20 20 90 45 20 195

01-03 East Chilkats 105 95 565 120 150 1,035

01-04A Berners Bay 45 40 265 80 50 480

01-04B N. Juneau Coast 80 70 340 120 65 675

01-04C Taku Inlet 95 85 610 130 165 1,085

01-04D Slocum Inlet 30 25 310 70 20 455

01-05A Taku Harbor 45 40 220 45 20 370

01-05B Port Snettisham 165 145 2,310 265 165 3,050

01-05C Windham Bay 115 100 2,070 310 150 2,745

01-05D Tracy Arm 30 25 135 75 0 265

01-05E Fords Terror 30 25 95 55 0 205

01-05F Endicott Arm 75 65 370 80 0 590

04-01A Gut Bay, Baranof 45 40 315 55 0 455

04-01B Port Armstrong 80 70 480 95 115 840

04-01C Nelson Bay 25 20 360 50 50 505

04-02A Redoubt Lake 125 110 1,095 240 100 1,670

04-02B Whale Bay 75 65 395 80 0 615

04-02C Necker Islands 125 110 1,060 240 100 1,635

04-02D SW Baranof 80 75 475 275 115 1,020

04-03 Sitka Area 345 305 5,565 795 540 7,550

04-04A Rodman Bay 95 60 2,670 100 65 2,990

04-04B Kelp Bay 135 85 4,975 165 165 5,525

04-04C Baranof Warm Springs 15 10 180 30 20 255

04-05A SW Admiralty 70 45 365 105 0 585

04-06A Pybus Bay 55 35 510 85 0 685

04-06B Eliza Harbor 70 45 235 85 0 435

04-07A Gambier Bay 35 25 210 85 0 355

04-07B Cross-Admiralty Canoe

Rte 70 45 300 105 0 520

Chapter 2 - 28 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2 

Shoreline II Use Areas

(Service

Days)-- 

Spring

Early

(Service

Days)-- 

Spring

Late

(Service

Days)-- 

Summer

(Service

Days)--Fall

(Service

Days)--

Winter

Total

04-08 NE Admiralty 55 35 240 105 0 435

04-09A Seymour Canal 70 45 240 105 0 460

04-09B Pack Creek Zoological

Area 70 45 0 105 0 220

04-10A Greens Creek 20 15 190 110 0 335

04-10B NW Admiralty 90 60 315 145 0 610

04-11A Port Frederick 140 90 990 280 130 1,630

04-11B Freshwater Bay 140 90 1,980 950 130 3,290

04-12 Tenakee Inlet 75 50 600 190 200 1,115

04-13 Peril Strait 185 120 3,795 235 230 4,565

04-14 Slocum Arm 50 45 215 90 0 400

04-15A Lisianski 110 95 895 210 165 1,475

04-15B West Yakobi Island 40 35 240 50 0 365

04-15C Stag Bay 15 15 80 15 0 125

04-15D Portlock Harbor 40 35 185 90 0 350

04-16A Point Adolphus 165 145 1,095 220 65 1,690

04-16B North Chichagof 85 75 735 105 85 1,085

04-16C Idaho Inlet 330 290 2,285 110 100 3,115

04-16D PLI Wilderness 30 25 200 45 0 300

04-16E Port Althorp 335 295 3,535 235 100 4,500

Totals 4,445 3,595 44,920 7,575 3,405 63,940

Alternative 4 

This alternative allocates 130,655 service days to outfitter/guide use. It was calculated by applying a 5 

percent increase to the proposed action and compounded annually over a 10-year period. Alternative 4 

was developed to emphasize support for local and regional economies by increasing opportunities for 

outfitters and guides. 

A variety of data was reviewed to assess outfitter/guide markets. The conclusion drawn was that total 

visitation, cruise ship visitation, small cruise vessel capacity, and guided client’s use of the Tongass 

National Forest is increasing about 2 to 6 percent a year. Therefore, a 5 percent increase in the 

outfitter/guide allocation is warranted based on overall trends in the Southeast Alaska visitor industry and 

to accommodate a growing visitor industry. Increasing outfitter/guide allocations is aligned with the 

USDA’s transition strategy to encourage the diversification of the regional economy with particular focus 

on non-timber sectors. The increased number of service days compounded annually over a 10 year period 

at 5 percent would allow for economic growth resulting in greater economic opportunity in the region. 

With the exception of temporary recession-related slumps in Alaska’s visitor industry during 2009 and 

2010, statewide and regional long-term visitor industry trends indicate sustained periods of growth 

spanning over two decades. Since 2005 (excluding 2009 and 2010), statewide visitor volume has 

increased on average 2 percent per year, including cruise ship passengers, commercial air travelers, and 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 29 -
Chapter 2—Alternatives 

independent highway/ferry tourists. In Southeast Alaska, total cruise passenger volume alone has 

increased on average 5 percent per year (1998-2014). 

History indicates Southeast Alaska’s visitor industry follows national and international trends. As the US 

economy continues to recover and expand, the regional visitor industry is also expected to grow, 

providing more jobs and earnings over time.

Table 2-4: Service days by season and use area for Alternative 4 

Shoreline II Use Areas

(Service

Days)-- 

Spring

Early

(Service

Days)-- 

Spring

Late

(Service

Days)-- 

Summer

(Service

Days)--Fall

(Service

Days)--

Winter

Total

01-01 Skagway Area 260 230 1,160 425 200 2,275

01-02 Haines Area 45 40 190 85 35 395

01-03 East Chilkats 230 205 1,220 255 240 2,150

01-04A Berners Bay 100 85 565 170 80 1,000

01-04B N. Juneau Coast 165 145 735 250 110 1,405

01-04C Taku Inlet 205 180 1,315 285 270 2,255

01-04D Slocum Inlet 45 40 505 115 30 735

01-05A Taku Harbor 95 80 470 90 30 765

01-05B Port Snettisham 360 320 5,015 565 270 6,530

01-05C Windham Bay 185 165 3,370 510 240 4,470

01-05D Tracy Arm 65 55 285 155 0 560

01-05E Fords Terror 60 55 200 115 0 430

01-05F Endicott Arm 155 140 800 175 0 1,270

04-01A Gut Bay, Baranof 95 85 680 115 0 975

04-01B Port Armstrong 165 145 1,040 200 190 1,740

04-01C Nelson Bay 55 35 780 105 80 1,055

04-02A Redoubt Lake 265 235 2,380 510 160 3,550

04-02B Whale Bay 160 140 855 175 0 1,330

04-02C Necker Islands 265 235 2,290 510 160 3,460

04-02D SW Baranof 175 155 1,020 595 190 2,135

04-03 Sitka Area 750 665 12,090 1,720 880 16,105

04-04A Rodman Bay 150 100 4,345 160 110 4,865

04-04B Kelp Bay 290 185 10,800 350 270 11,895

04-04C Baranof Warm Springs 30 20 385 65 30 530

04-05A SW Admiralty 145 95 790 225 0 1,255

04-06A Pybus Bay 125 80 1,100 180 0 1,485

04-06B Eliza Harbor 155 100 505 180 0 940

04-07A Gambier Bay 70 45 450 180 0 745

04-07B Cross-Admiralty Canoe

Rte 145 95 645 225 0 1,110

04-08 NE Admiralty 115 75 520 225 0 935

04-09A Seymour Canal 145 95 520 225 0 985

04-09B Pack Creek Zoological 145 95 0 225 0 465

Chapter 2 - 30 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2 

Shoreline II Use Areas

(Service

Days)-- 

Spring

Early

(Service

Days)-- 

Spring

Late

(Service

Days)-- 

Summer

(Service

Days)--Fall

(Service

Days)--

Winter

Total

Area

04-10A Greens Creek 45 30 410 235 0 720

04-10B NW Admiralty 190 125 675 310 0 1,300

04-11A Port Frederick 230 150 1,605 450 215 2,650

04-11B Freshwater Bay 230 150 3,225 1,550 215 5,370

04-12 Tenakee Inlet 160 105 1,300 405 320 2,290

04-13 Peril Strait 405 260 8,235 500 375 9,775

04-14 Slocum Arm 110 100 465 200 0 875

04-15A Lisianski 235 210 1,940 450 270 3,105

04-15B West Yakobi Island 80 70 515 105 0 770

04-15C Stag Bay 30 25 175 35 0 265

04-15D Portlock Harbor 85 75 400 200 0 760

04-16A Point Adolphus 350 310 2,380 475 110 3,625

04-16B North Chichagof 180 160 1,595 225 135 2,295

04-16C Idaho Inlet 710 630 4,960 240 160 6,700

04-16D PLI Wilderness 65 55 435 90 0 645

04-16E Port Althorp 725 640 7,675 510 160 9,710

Totals 9,245 7,515 93,015 15,345 5,535 130,655

Items Common to All Action Alternatives____ 

Outfitter/guide use would be authorized by special use permits to outfitter/guide service providers which 

may be temporary in nature (less than 1 year) or for multiple years. Outfitters/ guides who have 

demonstrated satisfactory performance may be issued priority use permits, for up to 10 years, in 

accordance with Forest Service Handbook 2709.14. The selection of any alternative and allocation of 

service days does not restrict any use by the general public. 

The following items are common to all action alternatives.

Big Game Guide Management

The Forest Service proposes to allocate guided brown bear hunts in the ADF&G GMU 4 based on the 

recommended number of hunts in the 2000 Southeast Alaska Unit 4 Brown Bear Management Strategy 

(BBMS). The number of hunts will be allocated to each ADF&G Guide Use Area (GUA) in the spring 

and fall seasons proportionally based on the 5-year average from actual use reports (2010- 2014) (see 

Table 2-5. For example, the BBMS recommends10 hunts in ADF&G’s GUA 04-01, which contains 

Shoreline II Outfitter/Guide Use Areas 04-01A, B, and C. Based on the 5-year average, 61 percent of the 

hunts have occurred in the spring season and 39 percent have occurred in the fall season.

The Forest Service proposes to allocate 6 of the 10 hunts (61 percent) to the spring season and four hunts 

(39 percent) to the fall season. Since Shoreline II Outfitter/Guide use areas are smaller subunits of the 

ADF&G GUAs, the location of the hunts could occur across multiple Shoreline II Outfitter/Guide use 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 31 -
Chapter 2—Alternatives 

areas. The service days used for each hunt would be part of the total outfitter/guide allocation proposed 

for the use area and season.

Table 2-5. Proposed brown bear hunt allocation by group use area (GUA) and season

ADF&G 

GUA

BBMS 

Recommended 

Number of 

Guided Hunts

SPRING

Percent of 

Hunts Based on 

Actual Use

FALL

Percent of 

Hunts Based on 

Actual Use

SPRING 

Proposed 

Shoreline II Hunt 

Allocation

FALL

Proposed 

Shoreline II Hunt 

Allocation 

04-01 10 61 39 6 4 

04-02 7 52 48 4 3 

04-03 4 100 0 4 0 

04-04 11 67 33 7 4 

04-05 15 67 33 10 5 

04-06 16 80 20 13 3 

04-07 5 100 0 5 0 

04-08 1 100 0 1 0 

04-09 6 100 0 6 0 

04-10 9 78 22 7 2 

04-11 9 89 11 8 1 

04-12 14 73 27 10 4 

04-13 16 73 27 12 4 

04-14 6 53 4 3 3 

04-15 6 68 32 4 2 

04-16 6 70 30 4 2 

Total 141 104 37

To address the purpose and need of aligning outfitter/guide activities to updated national policies set forth 

in 2008, the following actions are proposed. 

• Continue to follow the guidelines regarding the number of hunts and guides set forth in BBMS, or

any future collaborative planning effort.

• Collaborate with State of Alaska Big Game Commercial Services Board (BGCSB) and ADF&G to

the maximum extent necessary to manage for healthy populations of wildlife and high quality public

recreation experiences. The BGCSB has primary responsibility for adopting regulations, licensing and

holding accountable big game guide businesses in the interest of the State’s wildlife resources. The

ADF&G manages wildlife populations through the issuance of hunting permits for taking of wildlife.

The Tongass National Forest manages access to NFS lands, habitat, and public recreation experiences

through a variety of means including the issuance of outfitter/guide special use permits.

• Rescind in its entirety the Outfitter and Guide Change in Ownership Direction (2009) that established

guidance relating to issuing special use permits to Limited Liability Corporations and limited the

number of hunts and service days in a change of outfitter/guide ownership to no more than two-thirds

the number held by the previous owner. Issue future permits for big game guides in accordance with

existing Forest Service policies set forth in the Code of Federal Regulations, Forest Service Manual,

Forest Service Handbook or other guidance.

• Special use permits for big game guiding issued to corporations or LLCs shall identify the maximum

number of registered guides that can operate under such permit as determined by the authorized

Chapter 2 - 32 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2 

officer on a case-by-case basis. For LLC’s or corporations authorized for brown bear hunting in GMU 

4, the cumulative number of registered brown bear hunting guides shall align with the 

recommendations in the BBMS.

• Special use permits for big game guiding (except wolf) shall identify the number of permitted hunts

specific to a GUA and season. In order to align with the Alaska Region fee schedule for

outfitter/guide activities, special use permits for wolf hunting activities shall identify the number of

service days (rather than hunts) specific to a GUA and season.

• Align all big game guide special use permits with policies set forth through the BGCSB and ADF&G.

Only authorize up to the maximum number of GUAs allowed by State of Alaska policies.

• Competitive interest (i.e., where demand for special use permits exceeds supply) for outfitter/guide

hunting of all big game species, except Sitka black-tail deer, exists in all of GMU 4 and only portions

of GMU 1 within the project area. Issue future big game guide special use permits where there is

competitive interest in accordance with Forest Service Manual direction, which is generally by

prospectus or change of ownership policies.

• In order to consider the option to issue permits through prospectus policies, align the terms of all big

game guide special use permits where there is competitive interest to expire in the same year (earliest

option is 2023). Existing big game guide special use permits will expire on their own terms or

terminate earlier if conditions warrant (e.g., change of ownership). Big game guide special use

permits re-issued prior to 2023 will be set to expire no later than 2023. Thereafter, all big game guide

permits will be set to the same expirations.

The actions are intended to address the fact that the number of brown bear hunts under special use permits 

and number of brown bear guides in GMU4 aligns with the recommendation in the BBMS. The actions 

are also intended to update and make consistent permit administration across the National Monument and 

three ranger districts. Further, the actions are intended to enhance the equity and transparency in the 

issuance and administration of big game guide special use permits in accordance to existing policies set 

forth in the Code of Federal Regulations, Forest Service Manual, Forest Service Handbook and other 

relevant guidance.

Large Group Areas 

It is proposed that no more than 50 percent of the total outfitter/guide allocation for a use area, by season, 

would be allowed at a large group area (LGA), with exceptions in use areas with hardened LGA sites. 

Hardened LGA sites are those with a natural or imported surface material, such as crushed rock or 

boardwalks, which greatly reduces soil disturbance from people walking within the site. At hardened LGA 

sites, the responsible official would have the flexibility to authorize more than 50 percent of that season’s 

use area allocation (not to exceed the total commercial allocation for the season). 

The following sites are proposed LGA additions in all alternatives:

• 04-01B - Big Port Walter Cannery

• 04-01B - Sashin Lake Trail

• 04-03 - Shoals Point

• 04-04B - Middle Arm, Kelp Bay

• 04-13 - False Island Camp

• 04-13 - Ushk Bay Head

Shoreline II Outfitter/Guide DEIS Chapter 2 - 33 -
Chapter 2—Alternatives 

• 04-16E - Port Althorp, Salt Chuck

• 04-16E – Port Althorp, Head of the Bay

Bohemia Basin (04-15B) is proposed for removal as a designated LGA.

Adaptive Management

How does Adaptive Management work?

Adaptive management seeks to provide a structure to evaluate how to best meet the project’s short-term 

and long-term goals, and helps answer the basic question: Are our management actions having the 

predicted or desired effects?

Adaptive Management is not a ‘trial and error’ process, but rather emphasizes learning while doing. 

Adaptive management does not represent an end in itself, but a means to more--effective decisions. It 

requires a measureable objective, monitoring to determine the effectiveness of the management practices 

used in achieving the objective, evaluation to determine if the objective is being reached, and adaptation 

based on the results.

Adaptive management requires managers to predict, mitigate, implement, monitor, and adapt. Managers 

repeat these steps over time to improve their understanding of a system and incorporate learning into 

resource management and protection. 

Adaptive management seeks to:

1. Allow for adaptation in order to meet a project’s environmental, social, and economic goals;

2. Involve stakeholders; and

3. Incorporate new knowledge into a transparent and agreed to framework in order to adjust decisionmaking as conditions change.

Why apply Adaptive Management to this project?

This is a landscape-level project that recognizes demand for certain types and amounts of guided and nonguided use and resource conditions will change incrementally over time due to economic trends, peoples’ 

preferences of recreation activities, and natural changes in ecological systems. Those changes may 

necessitate adjustments (increase/decrease in guided use) in the management of effects to resources in use 

areas (UA). While the Forest Service has gained much experience through years of managing guided use, 

there are still uncertainties surrounding how resources will respond to increased use, and the effects to the 

visitor experience. Based on the results, the Forest Service may adjust allocations in order to better protect 

resources and to improve visitor experiences. 

When developing a framework for authorizing commercial recreation use on the National Forest, a 

discussion between the terms “allocated use” and “actual use” is necessary to understand the impacts and 

impreciseness of the permitting framework. The Shoreline II project is a proposal to allocate a proportion 

of total (commercial and non-commercial) visitor capacity to commercial uses. The remainder of the total 

visitor capacity is reserved to represent the non-commercial recreation use that happens on the landscape. 

A business that obtains an outfitter/guide permit is authorized a portion of the total commercial allocation. 

In a typical use area, there are multiple businesses operating at the same time and collectively 

they utilize the allocation of commercial use service days. This is referred to as the allocated use, or what 

they are authorized to use in a single year.

Chapter 2 - 34 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2 

Actual use is the amount of an individual guide’s allocated use utilized by paying clients in a single year. 

Every year guide companies have some degree of uncertainty on how many clients they will attract to 

utilize all their allocated use. These uncertainties typically result from global, national and regional 

economic conditions, weather, and transportation logistics (i.e., the number of available seats to transport 

clients). Most guide companies desire an authorization of use at a level greater than their actual use. This 

offers opportunity for business growth if favorable conditions exist, rather than turning clients away or 

asking the agency for more use mid-season. This generally results in a gap where actual use is less than 

the allocated, or authorized, use. 

The Forest Service Manual establishes a policy to keep allocated (authorized) use in check with actual 

use. Every 5 years each special use authorization undergoes a review to rebalance allocated and actual 

use. Ideally these numbers would be in equilibrium, but the desire for flexibility and growth by the 

industry, and maximizing public recreation experiences by the agency, make it unlikely. This results in an 

imprecise allocated use-actual use permitting framework.

This element of uncertainty lends itself to an adaptive approach, and allows for a better assessment of use 

allocations and whether those allocations are meeting the project’s purpose and need. Integrating 

Adaptive Management and the NEPA process gives the Forest Service a tool that provides the flexibility 

to address unanticipated results of project implementation and to adjust decisions regarding the amount 

and locations of guided use for practical reasons.

Goals and desired outcome for the Shoreline II Adaptive 

Management Strategy

The Shoreline II EIS will lay the foundation for a collaborative Adaptive Management strategy to inform 

and improve outfitter and guide use management. The purpose of this plan is to meet the following three 

goals.

1. To provide a structured method to monitor and evaluate the impacts of outfitter/guide use within use

areas (UAs), in order to help mangers implement actions that keep resource impacts within the range

predicted in the EIS.

2. To provide baseline, and ongoing data regarding the impacts of outfitter/guide use and impacts within

UAs to inform adaptive decisions to increase or decrease use within specific UAs.

3. To be able to track changes to the project area throughout the life of the project, in order to continue

to offer quality recreation experiences, and expand economic opportunities if resource conditions

allow.

Table 2-6. Phases of the Shoreline II Adaptive Management Process 

Phase Step or Activity Description

Set-up phase of 

Adaptive Management

Forest Service development of

Adaptive Management plan Fall 2015

Stakeholderinvolvement

Ongoing: The public will be

introduced to the Adaptive

Management plan in Winter of

2015/2016 when the DEIS is 

published and the comment period is 

initiated. Public meetings will be

held, and written comments will be 

accepted during designated comment 

periods.

Shoreline II Outfitter/Guide DEIS Chapter 2 - 35 -
Chapter 2—Alternatives

Phase Step or Activity Description

Monitoringprotocols/resource

indicators

Will be revised and adjusted based

on public input between DEIS and

FEIS.

Iterative phase of Adaptive 

Management

Decision making

Adaptive Management may be

selected within the Shoreline II

Record of Decision (ROD), but there

is potential to make future

adjustments within parameters of the

FEIS analysis; metrics will be

prioritized with public input (provided

between Draft and Final EIS) and the

FS decision maker may select final

metrics.

Stakeholder Involvement

Outfitter/guides, members of the 

public, and the Forest Service 

collaborate on collecting data to 

support implementation of Adaptive 

Management. 

Monitoring begins

Once decided to implement Adaptive 

Management in a use area, a 2-year

period of monitoring to gather

baseline data is required, before

Adaptive Management decisions can

be instituted. Special use permits will

be amended to include Adaptive 

Management requirements for

operator in these use areas.

Ongoing monitoring

Monitoring will be conducted as 

outlined in Table 2-6, and reports will

be published in the Tongass Forest

Plan Monitoring Report.

Assessment, learning and feedback

Ongoing, with periodic stakeholder

meetings to discuss monitoring

results throughout the life of the

project.

How would Adaptive Management changes occur for this 

project?

Adaptive management would be applied to outfitter/guide allocations described in the proposed action 

and all alternatives, and designed to meet the Shoreline II project’s purpose and need. More specifically, 

the Adaptive Management framework may be implemented when any UAs’ actual use data fall within the 

range of 80 percent to 110 percent of the allocation for any use season (early spring, late spring, summer, 

fall, winter), and there is a request for additional use from an outfitter/guide. The authorized officer has 

discretion whether or not to implement Adaptive Management based on budget and workforce capacity. 

Outfitter/guides requesting use by implementing Adaptive Management may be subject to additional fees 

under cost recovery regulations. 

Actual use data is the information that the guides are required to report to the Forest Service at the end of 

every operating season. The actual use data provides specific information about the guides’ activities such 

as the location of their activities, the number of clients hosted at each location, and the date the activity 

occurred. Actual use data is entered into an outfitter/guide database managed by the Forest Service. The 

outfitter/guide database is used to track trends of actual use, determine specific locations that receive 

Chapter 2 - 36 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

intensive use, provide information that determines whether new applications for authorized use will be 

approved, and influence where monitoring may be necessary. Concerns regarding inaccurate selfreporting of actual use data are alleviated by policy that directs the Forest Service to reduce authorized

use to what is actually used, and to charge a fee for what is authorized in the permit. Under-reporting of 

actual use will result in the reduction of an individual guide’s authorization; over-reporting of use will 

require the guide to pay more for their permit.

The decision space for this Adaptive Management strategy is 1) when any UA for any season is between

80 percent and 110 percent of its allocation utilized in actual use and 2) whether or not to implement it 

with the given capacity. Decisions based on the Adaptive Management framework will not be 

implemented until at least 2 years after the Record of Decision has been signed to ensure adequate 

baseline information is collected. The priority for collecting baseline information will be in those UAs

and use seasons that currently utilize 75 percent to 80 percent of allocated actual use. 

While the district ranger or responsible official may take action in response to monitoring data collected, 

the Forest Service could not, under any scenario, authorize more than 110 percent of the allocated use (the 

maximum number of days evaluated under the selected alternative in the Selected Alternative) through

Adaptive Management, unless additional National Environmental Policy Act (NEPA) compliance is 

completed (see NEPA Review).

The following sections describe the components of the Adaptive Management framework, and the 

associated monitoring plan that would provide information to determine which/or what sort of adaptive 

action(s) could occur.

Table 2-7. Resource indicators and corresponding adaptive actions 

Resource: Indicator Monitoring Threshold/Trigger Adaptive Action

Recreation & 

Wilderness: Crowding

Monitor the use 

area and use 

season of concern 

annually for the first 

2 years to establish 

a baseline estimate 

of the number of 

encounters per 

day. Then monitor 

biannually until 

data and impact 

relationship 

remains stable for 

three consecutive 

data points.

Encounters with or 

amongst outfitter/guides

and public groups 

exceed the Forest Plan

ROS standards and 

guidelines at one or more 

use locations more than 

15 percent of the season 

of concern.

Require guides to monitor and report 

the number of encounters per day with 

their actual use report.

If monitoring data is below threshold, 

authorize up to 95 percent of the use 

area allocation. Continue monitoring 

annually for two years. If data remains 

below the threshold, authorize up to the 

maximum 110 percent of the use area 

allocation.

If monitoring data exceeds the 

threshold, do not authorize additional 

use and implement the following actions 

in priority order to the point where the 

threshold/trigger is achieved:

Encourage outfitter/guide

communication to coordinate activities 

to certain days/times to reduce 

encounters.

Guides voluntarily reduce the number of 

authorized service days. 

Agency formally revokes authorized 

service days proportionally from all 

guides utilizing the use area.

Recreation: Conflict 

between user groups

Annually monitor

UA and season

conflicts through

ad-hoc field

Conflicts between user

groups result in a

diminished recreation

experience and are

Require guides to report the number of

conflicts that result in a diminished

recreation experience for their clients or

public with their actual use report. 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 37 -
Chapter 2—Alternatives

Resource: Indicator Monitoring Threshold/Trigger Adaptive Action

monitoring and

reports from the

public and

outfitter/guide

businesses.

recorded in any 2 of 5

year period in any single

UA and season.

If monitoring data is below threshold,

authorize up to 95 percent of the UA

allocation. Continue monitoring annually

for two years. If data remains below the

threshold, authorize up to 110 percent of

the UA allocation. 

If monitoring data exceeds the

threshold, do not authorize additional

use and implement the following actions

in priority order to the point where the

threshold/trigger is achieved:

Encourage outfitter/guide

communication to coordinate activities

to certain days/times to eliminate

conflict.

Guides voluntarily reduce the authorized

number of service days. 

Agency formally revokes service days

proportionally from all guides utilizing the

UA. 

Other Resources

Monitor botany and 

heritage resources

in proposed use 

area at least once 

prior to 

implementing an 

Adaptive 

Management 

action. 

See Additional 

Monitoring section 

below.

Monitoring report 

concludes that botany 

and heritage resource 

conditions in the field are 

within the expected 

range of effects 

disclosed in the FEIS. 

If monitoring data is below threshold, 

authorize up to 95 percent of the UA 

allocation. Continue monitoring annually 

for two years. If data remains below the 

threshold, authorize up to 110 percent

of the UA allocation

If monitoring data exceeds the 

threshold, do not authorize additional 

use and implement the following actions 

in priority order to the point where the 

threshold/trigger is achieved:

Encourage outfitter/guide

communication to coordinate activities 

to certain days/times to reduce 

encounters.

Guides voluntarily reduce the 

authorized number of service days. 

Agency formally revokes service days

proportionally from all guides utilizing 

the UA. 

Additional Monitoring

Heritage

The Forest Service program for compliance with the National Historic Preservation Act (NHPA) includes 

locating, inventorying and evaluating the National Register of Historic Places eligibility of historic and 

archeological sites that may be directly or indirectly affected by scheduled activities. Regulations (36 

CFR 800) implementing Section 106 of the NHPA require Federal agencies to consider the effects of their 

actions on sites that are determined eligible for inclusion in or are listed in the National Register of 

Historic Places (termed "historic properties"). A Forest Service archeologist will conduct a cultural 

resource survey in the area of potential effect and conduct a files review to ensure compliance with NHPA 

and ensure that no historic properties will be affected. 

Chapter 2 - 38 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Botany

The most current information on sensitive, rare and invasive plants will be used to assess the need for

additional avoidance or mitigation measures. This includes the most current versions of the Alaska 

Region sensitive species list, the Tongass National Forest rare plant list, and the Tongass National Forest

high--priority invasive plant species list.

Any occurrence of previously undiscovered rare or sensitive plants before or during implementation will 

be evaluated to assess the need for additional avoidance or mitigation measures. Outfitter/guide permits 

will include site-specific practices to prevent the introduction and spread of invasive plants. 

On a site-specific basis, other species may be of concern and warrant prevention practices. The 2008

Tongass Forest Plan Invasive Species Standards and Guidelines (USDA Forest Service 2008c) and 2011 

Invasive Species Management manual direction (FSM 2900) provide policy for minimizing spread of 

invasive species.

Project specific management considerations and mitigation are noted on the use area, and large group area

cards located in Appendices A and B, respectively. For further site specific design features and mitigation

measures see Appendix C of this DEIS.

Scope of Work during Implementation 

Commitment of project--level monitoring is a commitment of resources to manage the National Forest. If 

included in the Selected Alternative, Adaptive Management will be implemented contingent upon agency 

funding and capacity. The estimated scope of work to implement Adaptive Management in the first 2-5 

years varies by alternative. Each alternative proposes an allocation that, when taken into consideration of

actual use, results in varying proportions of actual/ allocated use. Adaptive management would be 

employed when 80 percent of the allocated use is utilized by actual use. Optimally, monitoring would 

start at 75 percent, so there is a level of certainty regarding future management between agency and

outfitter guide businesses. This scope of work is based on the number of use areas and seasons that will be

at 75 percent or higher in each alternative. 

Table 2-8: Alternative 1 Use areas where Adaptive Management strategy would be employed in first 2-5 years 

of implementation

District Use Area Season Actual Use 

2010-2014

Proposed 

Allocation Proportion

JRD 01-05D Tracy Arm Fall 56 45 124%

JRD 01-05E Fords Terror Summer 293 153 192%

SRD 04-01A Gut Bay,

Baranof Summer 235 311 76%

SRD 04-02A Redoubt Lake Summer 258 101 255%

SRD 04-04B Kelp Bay Spring 211 201 95%

SRD 04-04B Kelp Bay Summer 2,825 1,181 239%

ANM 04-06A Pybus Bay Summer 573 590 97%

HRD 04-16C Idaho Inlet Summer 1,188 954 125%

HRD 04-16E Port Althorp Spring 200 127 157%

HRD 04-16E Port Althorp Summer 917 607 151%

Shoreline II Outfitter/Guide DEIS Chapter 2 - 39 -
Chapter 2—Alternatives

Table 2-9: Alternative 2 use areas where Adaptive Management strategy would be employed in first 2-5 

years of implementation 

District Use Area Season Actual Use 

2010-2014

Proposed 

Allocation Proportion

JRD 01-05E Fords Terror Summer 293 125 234%

ANM 04-10A Greens Creek Summer 190 250 76%

Table 2-10: Alternative 3 use areas where Adaptive Management strategy would be employed in first 2-5 

years of implementation 

District Use Area Season Actual Use 

2010-2014

Proposed 

Allocation Proportion

JRD 01-05D Tracy Arm Fall 56 75 75%

JRD 01-05E Fords Terror Summer 293 95 308%

SRD 04-01A Gut Bay,

Baranof Summer 235 315 75%

SRD 04-01A Gut Bay,

Baranof Fall 42 55 76%

SRD 04-04B Kelp Bay Spring 211 220 96%

ANM 04-06A Pybus Bay Summer 573 510 112%

ANM 04-07A Gambier Bay Spring 45 60 75%

ANM 04-10A Greens Creek Summer 190 190 100%

Table 2-11: Alternative 4 use areas where Adaptive Management strategy would be employed in first 

2-5 years of implementation

District Use Area Season Actual Use 

2010-2014

Proposed 

Allocation Proportion

JRD 01-05E Fords Terror Summer 293 200 147%

Early and Late Spring Seasons 

Discussion on the implications of extending the spring season, with it starting earlier, and exactly what 

action would prevent non-hunting outfitters/guides from using that “early” capacity in April and May, led 

to the division of the spring season into “early” and “late” spring seasons for Alternatives 2, 3, and 4. The 

splitting of the spring season into two different timeframes is an effort to avoid compounding any 

potential conflicts with hunting outfitters/guides. Essentially, “early spring” is identified as March 15 to 

April 24 and “late spring” is April 25 to May 20 or May 31. Proposed alternative allocations were split 

proportionally based on the number of days in each sub-season. This results in a reduction of service days

allocated in the more popular late spring season, which should help address the issue raised. 

It should be noted that Alternative 1, reflecting the use area allocation and seasons of the 2004 Shoreline 

Outfitter/Guide project, has only one season for spring.

Project Design Features and Mitigation

Design features are specific requirements to avoid or minimize environmental impacts and must be 

complied with by law, regulation, or policy, such as, but not limited to, BMP’s, Forest Plan standards and 

guidelines, and standard operating procedures; they can also come from IDT recommendations, issues or 

concerns from the public or other agencies, or scientific literature. 

Chapter 2 - 40 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Mitigation measures alleviate potential adverse effects from natural or human caused disturbances. 

Mitigation includes doing any, or a combination of, the following: (a) avoiding the impact altogether by 

not taking a certain action or parts of an action, (b) minimizing impacts by limiting the degree or 

magnitude of the action and its implementation, (c) rectifying the impact by repairing, rehabilitating, or 

restoring the affected environment, (d) reducing or eliminating the impact over time by preservation and 

maintenance operations during the life of the action, and (e) compensating for the impact by replacing or 

providing substitute resources or environments (40 CFR 1508.20). 

Project-specific design features and mitigation measures are described in Appendices A, B, and C of this 

document. Design features, and required mitigation must be approved by the responsible official, as 

outlined under the section Decision Framework in Chapter 1.

Project Monitoring and Evaluation

Monitoring and evaluation provide the public and the Forest Service with information on the progress and 

results of implementing National Forest management decisions. Monitoring and evaluation comprise an 

essential feedback mechanism to help be responsive to changing conditions. There are two distinct types 

of monitoring: implementation and effectiveness. Implementation monitoring determines if the permitted 

activities comply with adopted standards and guidelines: “Did we do what we said we would?” 

Effectiveness monitoring determines whether the standards and guidelines achieve desired results: “Were 

the results what we expected?”

Implementation and effectiveness monitoring will be accomplished through the administration of the 

special use permits issued as a result of this decision.

Monitoring and mitigation related to Adaptive Management decisions are outlined in Appendices A, B, C, 

and D.

Identification of the Preferred Alternative ___ 

The IDT has identified Alternative 2 (Proposed Action) as the preferred alternative based on the 

environmental analysis within this DEIS, and public and agency comments received. The responsible 

official may select this alternative, another alternative, or a modification of one of the alternatives in the 

Record of Decision.

Comparison of Alternatives_______________ 

Thissection includes comparison tables by season (numbers in parentheses indicate a negative). The units 

of measure are service days. 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 41 -
Chapter 2—Alternatives

Table 2-12: Alternative totals by season in service days 

Alternative

Spring 

Allocation— 

Early

Spring

Allocation— 

Late

Spring 

Allocation

Total

Summer

Allocation

Fall

Allocation

Winter

Allocation Total

1 N/A N/A 8400 32,225 6,827 0 47,452

2 5,710 4,640 10,350 57,120 9,430 3,405 80,305

3 4,445 3,595 8,040 44,920 7,575 3,405 63,940

4 9,245 7,515 16,760 93,015 15,345 5,535 130,655

Chapter 2 - 42 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Table 2-13: Comparison of alternatives in early spring season* 

Early Spring (March 15 to April 24) 

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

01-01 Skagway Area 992 0 0 16 160 160 12 120 120 26 260 260

01-02 Haines Area 165 0 0 18 30 30 12 20 20 27 45 45

01-03 East Chilkats 1,169 0 0 12 140 140 9 105 105 20 230 230

01-04A Berners Bay 533 0 0 11 60 60 8 45 45 19 100 100

01-04B N. Juneau

Coast 711 15 22 15 105 105 11 80 80 23 165 165

01-04C Taku Inlet 1,778 0 0 7 125 125 5 95 95 12 205 205

01-04D Slocum Inlet 178 0 0 17 30 30 17 30 30 25 45 45

01-05A Taku Harbor 198 0 0 30 60 60 23 45 45 48 95 95

01-05B Port

Snettisham 3,638 0 0 6 220 220 5 165 165 10 360 360

01-05C Windham Bay 2,232 3 6 5 115 115 5 115 115 8 185 185

01-05D Tracy Arm 533 0 0 8 40 40 6 30 30 12 65 65

01-05E Fords Terror 356 0 0 11 40 40 8 30 30 17 60 60

01-05F Endicott Arm 1,346 5 7 7 95 95 6 75 75 12 155 155

04-01A Gut Bay,

Baranof 946 1 3 6 60 60 5 45 45 10 95 95

04-01B Port

Armstrong 1,656 0 0 6 105 105 5 80 80 10 165 165

04-01C Nelson Bay 527 0 0 7 35 35 5 25 25 10 55 55

04-02A Redoubt Lake 1,066 0 0 15 165 165 12 125 125 25 265 265

04-02B Whale Bay 1,893 2 10 5 95 95 4 75 75 8 160 160

04-02C Necker

Islands 1,066 0 0 15 165 165 12 125 125 25 265 265

04-02D SW Baranof 710 0 0 15 110 110 11 80 80 25 175 175

Shoreline II Outfitter/Guide DEIS Chapter 2 - 43 - 
Chapter 2—Alternatives

Early Spring (March 15 to April 24) 

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

04-03 Sitka Area 6,548 51 150 7 460 460 5 345 345 11 750 750

04-04A Rodman Bay 611 0 0 16 95 95 16 95 95 25 150 150

04-04B Kelp Bay 1,757 5 8 10 180 180 8 135 135 17 290 290

04-04C Baranof

Warm Springs 176 0 0 11 20 20 9 15 15 17 30 30

04-05A SE Admiralty 403 2 5 22 90 90 17 70 70 36 145 145

04-06A Pybus Bay 621 1 4 12 75 75 9 55 55 20 125 125

04-06B Eliza Harbor 617 0 0 15 95 95 11 70 70 25 155 155

04-07A Gambier Bay 703 2 6 6 45 45 5 35 35 10 70 70

04-07B CrossAdmiralty Canoe Rte 886 0 0 10 90 90 8 70 70 16 145 145

04-08 NE Admiralty 1,406 0 0 5 70 70 4 55 55 8 115 115

04-09A Seymour

Canal 879 0 0 10 90 90 8 70 70 16 145 145

04-09B Pack Creek

Zoological Area 879 0 0 10 90 90 8 70 70 16 145 145

04-10A Greens Creek 176 0 0 14 25 25 11 20 20 26 45 45

04-10B NW Admiralty 1,933 0 1 6 120 120 5 90 90 10 190 190

04-11A Port Frederick 1,406 0 0 10 140 140 10 140 140 16 230 230

04-11B Freshwater

Bay 1,406 0 1 10 140 140 10 140 140 16 230 230

04-12 Tenakee Inlet 981 2 4 10 100 100 8 75 75 16 160 160

04-13 Peril Strait 2,460 0 0 10 250 250 8 185 185 16 405 405

04-14 Slocum Arm 660 0 0 11 70 70 8 50 50 17 110 110

04-15A Lisianski 1,778 0 0 8 145 145 6 110 110 13 235 235

04-15B West Yakobi

Island 1,600 0 0 3 50 50 3 40 40 5 80 80

Chapter 2 - 44 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Early Spring (March 15 to April 24) 

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

04-15C Stag Bay 533 0 0 4 20 20 3 15 15 6 30 30

04-15D Portlock

Harbor 1,244 0 0 4 50 50 3 40 40 7 85 85

04-16A Point

Adolphus 711 0 0 30 215 215 23 165 165 49 350 350

04-16B North

Chichagof 431 0 0 26 110 110 20 85 85 42 180 180

04-16C Idaho Inlet 2,902 0 0 15 435 435 11 330 330 24 710 710

04-16D PLI

Wilderness 711 0 0 6 40 40 4 30 30 9 65 65

04-16E Port Althorp 2,952 0 0 15 445 445 11 335 335 25 725 725

Total 59,063 89 227 5,710 5,710 4,445 4,445 9,245 9,245

*Alternative 1 (no action) is not included since visitor capacity and service days are zero for all use areas.

Shoreline II Outfitter/Guide DEIS Chapter 2 - 45 - 
Chapter 2—Alternatives

Table 2-14: Comparison of alternatives for the late spring season 

Late Spring (April 25 to May 20 or May 31)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days)

Average 

O/G 

Annual 

Use 

(2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 1)

Alt 4 

(% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

01-01 Skagway

Area 880 0 0 35 311 16 145 (166) 13 110 (201) 26 230 (81)

01-02 Haines Area 147 0 0 121 178 17 25 (153) 14 20 (158) 27 40 (138)

01-03 East Chilkats 1,037 13 26 30 311 12 125 (186) 9 95 (216) 20 205 (106)

01-04A Berners

Bay 473 9 22 52 244 12 55 (189) 8 40 (204) 18 85 (159)

01-04B N. Juneau

Coast 631 4 22 29 186 14 90 (96) 11 70 (116) 23 145 (41)

01-04C Taku Inlet 1,576 0 0 15 240 7 110 (130) 5 85 (155) 11 180 (60)

01-04D Slocum

Inlet 157 0 0 155 244 16 25 (219) 16 25 (219) 25 40 (204)

01-05A Taku

Harbor 175 25 36 106 186 29 50 (136) 23 40 (146) 46 80 (106)

01-05B Port

Snettisham 3,226 96 138 10 311 6 195 (116) 4 145 (166) 10 320 9 

01-05C Windham

Bay 1,980 87 184 13 260 5 100 (160) 5 100 (160) 8 165 (95)

01-05D Tracy Arm 473 3 8 12 56 7 35 (21) 5 25 (31) 12 55 (1) 

01-05E Fords

Terror 315 7 18 30 93 11 35 (58) 8 25 (68) 17 55 (38)

01-05F Endicott

Arm 1,194 57 118 11 131 7 85 (46) 5 65 (66) 12 140 9 

04-01A Gut Bay,

Baranof 839 44 92 11 89 7 55 (34) 5 40 (49) 10 85 (4) 

04-01B Port

Armstrong 1,469 36 99 12 171 6 90 (81) 5 70 (101) 10 145 (26)

Chapter 2 - 46 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Late Spring (April 25 to May 20 or May 31)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days)

Average 

O/G 

Annual 

Use 

(2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 1)

Alt 4 

(% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

04-01C Nelson Bay 337 2 10 15 50 7 25 (25) 6 20 (30) 10 35 (15)

04-02A Redoubt

Lake 946 17 30 3 32 15 145 113 12 110 78 25 235 203 

04-02B Whale Bay 1,679 74 91 11 179 5 85 (94) 4 65 (114) 8 140 (39)

04-02C Necker

Islands 946 6 21 4 35 15 145 110 12 110 75 25 235 200 

04-02D SW

Baranof 630 9 16 22 141 15 95 (46) 12 75 (66) 25 155 14 

04-03 Sitka Area 5,807 86 174 11 622 7 410 (212) 5 305 (317) 11 665 43 

04-04A Rodman

Bay 541 5 8 27 146 11 60 (86) 11 60 (86) 18 100 (46)

04-04B Kelp Bay 1,124 206 269 18 201 10 115 (86) 8 85 (116) 16 185 (16)

04-04C Baranof

Warm Springs 112 0 0 25 28 13 15 (13) 9 10 (18) 18 20 (8) 

04-05A SE

Admiralty 257 58 85 80 206 23 60 (146) 18 45 (161) 37 95 (111)

04-06A Pybus Bay 397 48 90 31 122 13 50 (72) 9 35 (87) 20 80 (42)

04-06B Eliza

Harbor 394 46 51 38 150 15 60 (90) 11 45 (105) 25 100 (50)

04-07A Gambier

Bay 449 43 61 18 79 7 30 (49) 6 25 (54) 10 45 (34)

04-07B CrossAdmiralty Canoe

Rte

566 12 28 17 99 11 60 (39) 8 45 (54) 17 95 (4) 

04-08 NE Admiralty 899 2 10 24 218 5 45 (173) 4 35 (183) 8 75 (143)

04-09A Seymour

Canal 562 16 23 33 187 11 60 (127) 8 45 (142) 17 95 (92)

04-09B Pack Creek 562 5 19 0 0 11 60 60 8 45 45 17 95 95 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 47 - 
Chapter 2—Alternatives

Late Spring (April 25 to May 20 or May 31)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days)

Average 

O/G 

Annual 

Use 

(2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 1)

Alt 4 

(% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

Zoological Area

04-10A Greens

Creek 112 1 3 78 87 18 20 (67) 13 15 (72) 27 30 (57)

04-10B NW

Admiralty 1,236 48 68 14 175 6 75 (100) 5 60 (115) 10 125 (50)

04-11A Port

Frederick 899 20 48 17 157 10 90 (67) 10 90 (67) 17 150 (7) 

04-11B Freshwater

Bay 899 18 54 19 170 10 90 (80) 10 90 (80) 17 150 (20)

04-12 Tenakee

Inlet 627 75 127 48 304 10 65 (239) 8 50 (254) 17 105 (199)

04-13 Peril Strait 1,573 101 143 38 599 10 160 (439) 8 120 (479) 17 260 (339)

04-14 Slocum Arm 585 40 47 43 249 10 60 (189) 8 45 (204) 17 100 (149)

04-15A Lisianski 1,576 5 10 11 168 8 130 (38) 6 95 (73) 13 210 42 

04-15B West

Yakobi Island 1,419 2 10 6 89 3 45 (44) 2 35 (54) 5 70 (19)

04-15C Stag Bay 473 5 10 6 30 3 15 (15) 3 15 (15) 5 25 (5) 

04-15D Portlock

Harbor 1,104 3 8 6 69 4 45 (24) 3 35 (34) 7 75 6 

04-16A Point

Adolphus 631 8 25 32 200 30 190 (10) 23 145 (55) 49 310 110 

04-16B North

Chichagof 383 25 58 52 200 26 100 (100) 20 75 (125) 42 160 (40)

04-16C Idaho Inlet 2,574 139 272 8 200 15 385 185 11 290 90 24 630 430 

04-16D PLI

Wilderness 631 2 5 12 73 6 35 (38) 4 25 (48) 9 55 (18)

04-16E Port Althorp 2,617 200 305 5 127 15 395 268 11 295 168 24 640 513 

Totals 48,119 1,708 2,942 8,403 4,640 -3,763 3,595 -4,808 7,515 -888

Chapter 2 - 48 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Table 2-15: Comparison of alternatives for the summer season 

Summer (May 21 or June 1 to Sept. 14)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use 

(2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 

1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

01-01 Skagway Area 4,452 0 0 20 890 16 710 (180) 12 535 (355) 26 1,160 270 

01-02 Haines Area 1,272 0 0 22 286 9 115 (171) 7 90 (196) 15 190 (96)

01-03 East Chilkats 7,472 244 431 12 890 10 750 (140) 8 565 (325) 16 1,220 330 

01-04A Berners Bay 2,886 46 80 15 445 12 350 (95) 9 265 (180) 20 565 120 

01-04B N. Juneau

Coast 7,516 50 72 6 458 6 450 (8) 5 340 (118) 10 735 277 

01-04C Taku Inlet 11,533 9 24 8 916 7 810 (106) 5 610 (306) 11 1,315 399 

01-04D Slocum Inlet 617 138 264 72 445 50 310 (135) 50 310 (135) 82 505 60 

01-05A Taku Harbor 1,200 70 119 38 458 24 290 (168) 18 220 (238) 39 470 12 

01-05B Port

Snettisham 25,652 751 903 7 1,781 12 3,080 1,299 9 2,310 529 20 5,015 3,234 

01-05C Windham Bay 22,960 481 694 7 1,637 9 2,070 433 9 2,070 433 15 3,370 1,733 

01-05D Tracy Arm 2,162 47 77 8 183 8 175 (8) 6 135 (48) 13 285 102 

01-05E Fords Terror 1,526 143 176 10 153 8 125 (28) 6 95 (58) 13 200 47 

01-05F Endicott Arm 6,119 293 467 7 427 8 490 63 6 370 (57) 13 800 373 

04-01A Gut Bay,

Baranof 3,199 235 390 10 311 13 420 109 10 315 4 21 680 369 

04-01B Port

Armstrong 7,950 124 227 5 401 8 640 239 6 480 79 13 1,040 639 

04-01C Nelson Bay 3,182 4 17 9 275 15 480 205 11 360 85 25 780 505 

04-02A Redoubt Lake 14,602 258 420 1 101 10 1,460 1,359 7 1,095 994 16 2,380 2,279 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 49 - 
Chapter 2—Alternatives

Summer (May 21 or June 1 to Sept. 14)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use 

(2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 

1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

04-02B Whale Bay 5,829 151 177 10 577 9 525 (52) 7 395 (182) 15 855 278 

04-02C Necker

Islands 9,370 69 88 1 99 15 1,410 1,311 11 1,060 961 24 2,290 2,191 

04-02D SW Baranof 4,172 17 28 11 453 15 630 177 11 475 22 24 1,020 567 

04-03 Sitka Area 29,680 875 1224 12 3,562 25 7,420 3,858 19 5,565 2,003 41 12,090 8,528 

04-04A Rodman Bay 10,670 415 560 12 1,264 25 2,670 1,406 25 2,670 1,406 41 4,345 3,081 

04-04B Kelp Bay 26,512 2825 4151 4 1,181 25 6,630 5,449 19 4,975 3,794 41 10,800 9,619 

04-04C Baranof

Warm Springs 1,675 107 128 14 232 14 235 3 11 180 (52) 23 385 153 

04-05A SE Admiralty 2,425 211 284 19 463 20 485 22 15 365 (98) 33 790 327 

04-06A Pybus Bay 3,370 573 646 18 590 20 675 85 15 510 (80) 33 1,100 510 

04-06B Eliza Harbor 3,436 85 176 9 295 9 310 15 7 235 (60) 15 505 210 

04-07A Gambier Bay 2,765 77 133 14 393 10 280 (113) 8 210 (183) 16 450 57 

04-07B CrossAdmiralty Canoe Rte 3,036 80 114 16 491 13 395 (96) 10 300 (191) 21 645 154 

04-08 NE Admiralty 6,365 30 76 15 983 5 320 (663) 4 240 (743) 8 520 (463)

04-09A Seymour

Canal 3,978 21 83 30 1,193 8 320 (873) 6 240 (953) 13 520 (673)

04-09B Pack Creek

Zoological Area * * * * * * * * * * * * * * 

04-10A Greens Creek 999 190 398 59 590 25 250 (340) 19 190 (400) 41 410 (180)

04-10B NW Admiralty 5,148 25 38 11 590 8 415 (175) 6 315 (275) 13 675 85 

04-11A Port Frederick 7,582 100 195 12 943 13 990 47 13 990 47 21 1,605 662 

04-11B Freshwater

Bay 9,887 305 679 10 1,022 20 1,980 958 20 1,980 958 33 3,225 2,203 

04-12 Tenakee Inlet 9,954 86 187 8 842 8 800 (42) 6 600 (242) 13 1,300 458 

Chapter 2 - 50 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Summer (May 21 or June 1 to Sept. 14)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use 

(2010-

2014)

Highest 

O/G 

Annual 

Use 

(2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 

1)

Alt 3 (% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Difference 

(Alt 3-Alt 

1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

04-13 Peril Strait 20,218 696 902 5 1,011 25 5,055 4,044 19 3,795 2,784 41 8,235 7,224 

04-14 Slocum Arm 3,145 20 35 10 305 9 285 (20) 7 215 (90) 15 465 160 

04-15A Lisianski 4,755 22 67 13 601 25 1,190 589 19 895 294 41 1,940 1,339 

04-15B West Yakobi

Island 4,484 3 10 7 318 7 315 (3) 5 240 (78) 11 515 197 

04-15C Stag Bay 1,495 2 6 7 106 7 105 (1) 5 80 (26) 12 175 69 

04-15D Portlock

Harbor 3,487 50 116 7 247 7 245 (2) 5 185 (62) 11 400 153 

04-16A Point

Adolphus 3,650 453 823 26 954 40 1,460 506 30 1,095 141 65 2,380 1,426 

04-16B North

Chichagof 4,888 206 347 20 954 20 980 26 15 735 (219) 33 1,595 641 

04-16C Idaho Inlet 10,494 1188 1349 9 954 29 3,045 2,091 22 2,285 1,331 47 4,960 4,006 

04-16D PLI

Wilderness 1,769 81 176 20 347 15 265 (82) 11 200 (147) 25 435 88 

04-16E Port Althorp 9,423 917 1183 6 607 50 4,710 4,103 38 3,535 2,928 81 7,675 7,068 

Totals 338,961 12,773 18,740 32,224 57,120 24,896 44,920 12,696 93,015 60,791 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 51 - 
Chapter 2—Alternatives

Table 2-16: Comparison of alternatives for the fall season 

Fall (Sept. 15 to Dec. 31)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use (2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 1)

Alt 3

(% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Differenc

e (Alt 3-

Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

01-01 Skagway

Area 2,592 0 0 6 156 10 260 104 8% 195 39 16% 425 269 

01-02 Haines Area 432 0 0 34 148 13 55 (93) 10% 45 (103) 20% 85 (63)

01-03 East

Chilkats 3,110 2 7 10 312 5 160 (152) 4% 120 (192) 8% 255 (57)

01-04A Berners

Bay 1,037 0 0 15 156 10 105 (51) 8% 80 (76) 16% 170 14 

01-04B N. Juneau

Coast 1,382 16 80 11 150 11 155 5 9% 120 (30) 18% 250 100 

01-04C Taku Inlet 3,456 0 0 4 150 5 170 20 4% 130 (20) 8% 285 135 

01-04D Slocum

Inlet 346 0 0 45 156 20 70 (86) 20% 70 (86) 33% 115 (41)

01-05A Taku

Harbor 346 2 7 43 150 16 55 (95) 13% 45 (105) 26% 90 (60)

01-05B Port

Snettisham 3,456 6 10 9 312 10 350 38 8% 265 (47) 16% 565 253 

01-05C Windham

Bay 3,110 8 32 13 402 10 310 (92) 10% 310 (92) 16% 510 108 

01-05D Tracy Arm 1,168 56 67 4 45 8 95 50 6% 75 30 13% 155 110 

01-05E Fords

Terror 691 6 8 13 89 10 70 (19) 8% 55 (34) 17% 115 26 

01-05F Endicott

Arm 1,512 39 48 7 105 7 105 0 5% 80 (25) 12% 175 70 

04-01A Gut Bay,

Baranof 1,362 42 59 5 69 5 70 1 4% 55 (14) 8% 115 46 

04-01B Port

Armstrong 2,419 7 15 5 109 5 125 16 4% 95 (14) 8% 200 91 

04-01C Nelson 1,037 1 3 5 55 6 65 10 5% 50 (5) 10% 105 50 

Chapter 2 - 52 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Fall (Sept. 15 to Dec. 31)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use (2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 1)

Alt 3

(% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Differenc

e (Alt 3-

Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

Bay

04-02A Redoubt

Lake 2,074 3 11 1 27 15 315 288 12 240 213 25 510 483 

04-02B Whale Bay 2,576 29 71 4 110 4 105 (5) 3 80 (30) 7 175 65 

04-02C Necker

Islands 2,074 0 0 1 29 15 315 286 12 240 211 25 510 481 

04-02D SW

Baranof 2,419 2 5 4 86 15 365 279 11 275 189 25 595 509 

04-03 Sitka Area 13,187 117 325 4 499 8 1,055 556 6 795 296 13 1,720 1,221 

04-04A Rodman

Bay 1,382 9 22 7 101 7 100 (1) 7 100 (1) 12 160 59 

04-04B Kelp Bay 4,253 35 63 3 139 5 215 76 4 165 26 8 350 211 

04-04C Baranof

Warm Springs 346 7 12 11 37 12 40 3 9 30 (7) 19 65 28 

04-05A SE

Admiralty 1,728 37 53 14 243 8 140 (103) 6 105 (138) 13 225 (18)

04-06A Pybus Bay 1,382 30 56 6 89 8 110 21 6 85 (4) 13 180 91 

04-06B Eliza

Harbor 1,382 4 8 6 89 8 110 21 6 85 (4) 13 180 91 

04-07A Gambier

Bay 1,382 1 3 6 79 8 110 31 6 85 6 13 180 101 

04-07B CrossAdmiralty Canoe

Rte

1,728 0 0 6 99 8 140 41 6 105 6 13 225 126 

04-08 NE

Admiralty 2,765 0 0 8 218 5 140 (78) 4 105 (113) 8 225 7 

04-09A Seymour

Canal 1,728 15 28 11 187 8 140 (47) 6 105 (82) 13 225 38 

04-09B Pack 1,728 19 27 0 0 8 140 140 6 105 105 13 225 225 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 53 - 
Chapter 2—Alternatives

Fall (Sept. 15 to Dec. 31)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use (2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 1)

Alt 3

(% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Differenc

e (Alt 3-

Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

Creek Zoological 

Area 

04-10A Greens

Creek 572 37 167 26 150 25 145 (5) 19 110 (40) 41 235 85 

04-10B NW

Admiralty 3,802 13 21 7 262 5 190 (72) 4 145 (117) 8 310 48 

04-11A Port

Frederick 2,765 6 23 6 157 10 280 123 10 280 123 16 450 293 

04-11B

Freshwater Bay 9,504 51 149 2 170 10 950 780 10 950 780 16 1,550 1,380 

04-12 Tenakee

Inlet 4,147 25 57 7 304 6 250 (54) 5 190 (114) 10 405 101 

04-13 Peril Strait 4,385 68 102 7 324 7 310 (14) 5 235 (89) 11 500 176 

04-14 Slocum Arm 2,419 31 47 5 112 5 120 8 4 90 (22) 8 200 88 

04-15A Lisianski 3,456 2 5 3 88 8 280 192 6 210 122 13 450 362 

04-15B West

Yakobi Island 3,110 4 10 2 47 2 65 18 2 50 3 3 105 58 

04-15C Stag Bay 1,037 2 4 2 16 2 20 4 1 15 (1) 3 35 19 

04-15D Portlock

Harbor 2,419 7 14 1 36 5 120 84 4 90 54 8 200 164 

04-16A Point

Adolphus 1,382 12 59 10 140 21 290 150 16 220 80 34 475 335 

04-16B North

Chichagof 1,728 5 18 8 140 8 140 0 6 105 (35) 13 225 85 

04-16C Idaho Inlet 2,074 13 8 7 140 7 145 5 5 110 (30) 12 240 100 

04-16D PLI

Wilderness 1,382 0 0 4 51 4 55 4 3 45 (6) 7 90 39 

04-16E Port

Althorp 2,074 0 0 4 89 15 310 221 11 235 146 25 510 421 

Chapter 2 - 54 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Fall (Sept. 15 to Dec. 31)

Shoreline II Use 

Areas

Estimated 

Visitor 

Capacity 

(Service 

Days) 

Average 

O/G 

Annual 

Use (2010-

2014)

Highest 

O/G 

Annual 

Use (2010-

2014)

Alt 1 - No 

Action (% 

of Visitor 

Capacity)

Alt 1 - No 

Action 

(Service 

Days) 

Alt 2 (% of 

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Difference 

(Alt 2-Alt 1)

Alt 3

(% of 

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Differenc

e (Alt 3-

Alt 1)

Alt 4 (% of 

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

Difference 

(Alt 4-Alt 

1)

Totals 115,846 769 1,704 6,822 9,430 2,608 7,575 753 15,345 8,523 

Shoreline II Outfitter/Guide DEIS Chapter 2 - 55 - 
Table 2-17: Comparison of alternatives for the winter season 

Winter (Jan.1 to March 14)

Shoreline II Use Areas

Estimated 

Visitor 

Capacity

(Service 

Days) 

Average

O/G

Annual

Use (2010- 

2014)

Highest

O/G

Annual

Use 

(2010- 

2014)

Alt 2 (% of

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Alt 3 (% of

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Alt 4 (% of

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

01-01 Skagway Area 1,752 0 0 7 125 7 125 11 200

01-02 Haines Area 292 0 0 7 20 7 20 12 35

01-03 East Chilkats 2,102 0 0 7 150 7 150 11 240

01-04A Berners Bay 701 0 0 7 50 7 50 11 80

01-04B N. Juneau Coast 934 12 60 7 65 7 65 12 110

01-04C Taku Inlet 2,336 0 0 7 165 7 165 12 270

01-04D Slocum Inlet 234 0 0 9 20 9 20 13 30

01-05A Taku Harbor 234 0 0 9 20 9 20 13 30

01-05B Port Snettisham 2,336 0 0 7 165 7 165 12 270

01-05C Windham Bay 2,102 0 0 7 150 7 150 11 240

01-05D Tracy Arm 701 0 0 0 0 0 0 0 0 

01-05E Fords Terror 467 0 0 0 0 0 0 0 0 

01-05F Endicott Arm 1,635 0 0 0 0 0 0 0 0 

04-01A Gut Bay, Baranof 1,168 0 0 0 0 0 0 0 0 

04-01B Port Armstrong 1,635 0 0 7 115 7 115 12 190

04-01C Nelson Bay 701 0 0 7 50 7 50 11 80

04-02A Redoubt Lake 1,402 0 0 7 100 7 100 11 160

04-02B Whale Bay 3,270 0 0 0 0 0 0 0 0 

04-02C Necker Islands 1,402 0 0 7 100 7 100 11 160

04-02D SW Baranof 1,635 0 0 7 115 7 115 12 190

04-03 Sitka Area 7,709 20 64 7 540 7 540 11 880

04-04A Rodman Bay 934 0 0 7 65 7 65 12 110

Chapter 2 - 56 - Shoreline II Outfitter/Guide DEIS 
Alternatives—Chapter 2

Winter (Jan.1 to March 14)

Shoreline II Use Areas

Estimated 

Visitor 

Capacity

(Service 

Days) 

Average

O/G

Annual

Use (2010- 

2014)

Highest

O/G

Annual

Use 

(2010- 

2014)

Alt 2 (% of

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Alt 3 (% of

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Alt 4 (% of

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

04-04B Kelp Bay 2,336 0 0 7 165 7 165 12 270

04-04C Baranof Warm

Springs 234 0 0 9 20 9 20 13 30

04-05A SE Admiralty 1,168 0 0 0 0 0 0 0 0 

04-06A Pybus Bay 934 0 0 0 0 0 0 0 0 

04-06B Eliza Harbor 934 0 0 0 0 0 0 0 0 

04-07A Gambier Bay 934 0 0 0 0 0 0 0 0 

04-07B Cross-Admiralty

Canoe Rte 1,168 0 0 0 0 0 0 0 0 

04-08 NE Admiralty 1,869 0 0 0 0 0 0 0 0 

04-09A Seymour Canal 1,168 0 0 0 0 0 0 0 0 

04-09B Pack Creek

Zoological Area 1,168 0 0 0 0 0 0 0 0 

04-10A Greens Creek 234 0 0 0 0 0 0 0 0 

04-10B NW Admiralty 2,570 0 0 0 0 0 0 0 0 

04-11A Port Frederick 1,869 1 3 7 130 7 130 12 215

04-11B Freshwater Bay 1,869 0 0 7 130 7 130 12 215

04-12 Tenakee Inlet 2,803 0 0 7 200 7 200 11 320

04-13 Peril Strait 3,270 0 0 7 230 7 230 11 375

04-14 Slocum Arm 1,635 0 0 0 0 0 0 0 0 

04-15A Lisianski 2,336 0 0 7 165 7 165 12 270

04-15B West Yakobi Island 2,102 0 0 0 0 0 0 0 0 

04-15C Stag Bay 701 0 0 0 0 0 0 0 0 

04-15D Portlock Harbor 1,635 0 0 0 0 0 0 0 0 

04-16A Point Adolphus 934 0 0 7 65 7 65 12 110

Shoreline II Outfitter/Guide DEIS Chapter 2 - 57 - 
Winter (Jan.1 to March 14)

Shoreline II Use Areas

Estimated 

Visitor 

Capacity

(Service 

Days) 

Average

O/G

Annual

Use (2010- 

2014)

Highest

O/G

Annual

Use 

(2010- 

2014)

Alt 2 (% of

Visitor 

Capacity)

Alt 2 

(Service 

Days) 

Alt 3 (% of

Visitor 

Capacity)

Alt 3 

(Service 

Days) 

Alt 4 (% of

Visitor 

Capacity)

Alt 4 

(Service 

Days) 

04-16B North Chichagof 1,168 0 0 7 85 7 85 12 135

04-16C Idaho Inlet 1,402 0 0 7 100 7 100 11 160

04-16D PLI Wilderness 934 0 0 0 0 0 0 0 0 

04-16E Port Althorp 1,402 0 0 7 100 7 100 11 160

Totals 74,459 33 127 3,405 3,405 5,535

Chapter 2 - 58 - Shoreline II Outfitter/Guide DEIS 
Chapter 3

Environmental 

Consequences

Chapter 3. Environmental 

Consequences

Introduction ________________________ This chapter summarizes the physical, biological, social, and economic environments of the affected 

project area and the potential effects to those environments due to implementation of the alternatives. It 

also presents the scientific and analytical basis for the comparison of alternatives presented in Chapter 2.

Direct, indirect, and cumulative effects are disclosed. Effects are quantified where possible, but 

qualitative discussions are also included. 

The following discussion of resources and potential effects associated with each of the alternative uses 

information included in the Forest Plan, other project environmental analyses, project specific resource 

reports and related information, analyses, and other sources as indicated. Where applicable, such 

information is briefly summarized and referenced to minimize duplication. 

Analyzing Effects

Environmental consequences are the effects of implementing an alternative on the physical, biological, 

social, and economic environment. The Council of Environmental Quality (CEQ) regulations for 

implementing the National Environmental Policy Act (NEPA) include a number of specific categories to 

use for the analysis of environmental consequences. Several of these categories are applicable to the 

analysis of the proposed project and alternatives. They form the basis of much of the analysis that follows 

and are explained briefly below. 

Direct, Indirect, and Cumulative Effects

Effects disclosed in this document are organized into three categories: direct, indirect, and cumulative 

effects. Direct environmental effects occur at the same time and place as the initial cause or action. 

Indirect effects occur later in time or are spatially removed from the action. Cumulative effects result 

from the incremental effects of actions, when added to other past, present, and reasonably foreseeable 

future actions. Cumulative effects can result from individually minor, but collectively significant, actions 

taking place over a period of time. Effects are discussed below by resource.

The interdisciplinary team (IDT) developed a list of activities to consider when analyzing the cumulative 

effects of the project. The project list included but was not limited to:

• Kruzof Integrated Resource Project

• Hidden Falls Fish Hatchery Repermit

• Sweetheart Lake Hydroelectric project in Gilbert Bay

• State of Alaska energy projects

• Sealaska Land Exchange

• Angoon Airport

• Thayer Lake Hydroelectric project
Chapter 3—Environmental Consequences

A complete list of projects is included in the Project Record. 

Short-term Uses and Long-term Productivity

NEPA requires consideration of “the relationship between short-term uses of man’s environment and the 

maintenance and enhancement of long-term productivity” (40 CFR 1502.16). As declared by Congress, 

this includes using all practicable means and measures, including financial and technical assistance, in a 

manner calculated to foster and promote the general welfare, to create and maintain conditions under 

which man and nature can exist in productive harmony, and fulfill the social, economic, and other 

requirements of present and future generations of Americans (NEPA Section 101). 

Short-term uses, and their effects, are those activities that occur annually or within the first few years of 

project implementation. Long-term productivity refers to the capability of the land and resources to 

continue producing goods and services long after the project has been implemented. Under the MultipleUse Sustained-Yield Act and the National Forest Management Act, all renewable resources are to be 

managed so that they are available for future generations.

Outfitter/guide use is expected to have minimal effect on trees and tree growth, but could affect native 

plants, the spread of invasive plants, and archeological sites. Long-term productivity of resources is 

expected to be maintained through the application of site specific resource protection measures (design 

features and mitigation measures) and Adaptive Management as described in Chapter 2 and Appendices 

A, B, C and D. 

Unavoidable Adverse Effects

Implementation of an action alternative may cause some adverse environmental effects that cannot be 

effectively mitigated or avoided. Unavoidable adverse effects often result from managing the land for one 

resource at the expense of the use or condition of one or several other resources. Many adverse effects can 

be reduced, mitigated, or avoided by limiting the extent or duration of effects. The application of Forest 

Plan Standards and Guidelines, Best Management Practices (BMPs), project-specific project design and 

mitigation measures, Adaptive Management and monitoring are all intended to further limit the extent, 

severity, and duration of potential effects. Such measures are discussed throughout this chapter. 

Irreversible and Irretrievable Commitments of

Resources

Irreversible commitments of resources are those that cannot be regained, such as the extinction of a 

species or the removal of mined ore. Irretrievable commitments are those that are lost for a period of time 

such as the temporary loss of timber productivity in forested areas that are kept clear for use as a power

line rights-of-way or road. 

As an example, the use of rock for construction or the loss of the only known population of a plant would 

be an irreversible commitment of that resource since the rock is no longer in the ground or the plant no 

longer exists. A lower allocation of service days to outfitter/guides is a loss of business productivity, 

which is an irretrievable commitment of resources.

No irreversible commitments are expected if the design features and mitigation measures are applied as 

outlined in Appendix C are implemented. The action alternatives may reduce the amount of potential 

guided use in some recreation use areas but may also increase potential guided use in most other areas. 

While there could be an irretrievable loss of business productivity in some locations; it may be offset by 

the gains in other locations. 

Chapter 3 - 60 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Other Resources ____________________ Several resources and uses of the project area are likely to remain unaffected by the Proposed Action or 

alternatives, or will not be affected to a significant degree. Even though significant effects are not 

expected, these resources are discussed in the Analysis of the Alternatives by Resource section of this 

chapter to the extent those measurable effects or differences between alternatives are present. Resources 

or uses for which no measurable effects were identified are discussed briefly here.

Air Quality/Climate Change

No significant effects on global carbon sequestration levels are expected under any of the alternatives

considered for the 2008 Forest Plan Final EIS. Therefore, it is reasonable to conclude that small changes 

(project-level) in carbon sequestration on the Tongass, whether beneficial or adverse, would have a minor 

effect on atmospheric carbon levels. All of the action alternatives proposed for this project would have 

limited, short-term effects on ambient air quality. Such effects, in the form of boat motor emissions are 

likely to be indistinguishable from other local sources of airborne particulates.

Inventoried Roadless Areas

The Shoreline II Outfitter/Guide EIS does not propose any road building, or new facilities within 

Inventoried Roadless Areas. There will be no effects from implementation of any of the action 

alternatives to the physical, biological or social values of any project area IRAs, keeping roadless area 

characteristics unchanged across the project area.

Land Ownership and Administration

None of the Proposed Alternatives promote vandalism, trespass, or ground disturbance at or near preexisting permitted land activities. Therefore, no adverse effects (direct, indirect, or cumulative) are 

anticipated if Shoreline II project alternatives are implemented.

The proposed alternatives will not result in any adverse or beneficial cumulative effects to Permitted Land 

Activities. The modification to existing allocations of recreational use days will typically be in previously 

disturbed areas. Special-use permits pertaining to roads, power lines, telephone lines, hydroelectric 

facilities, and telecommunication locations are likely to continue with no significant change into the 

future. Short-term special uses for specific events are analyzed on a case by case basis. There are 

currently no pending special use permits within the planning area awaiting analysis. 

Analysis of the Alternatives by Resource

The following sections describe the environmental effects of each of the alternatives as they relate to each 

resource for this project. Concerns, suggestions, and design recommendations are discussed as they relate 

to the project’s affected environment and potential effects of the alternatives on resources.

Socioeconomics 

Introduction

A shared characteristic of all Shoreline II Outfitter/Guide EIS alternatives is that they manage commercial 

outfitter/guide activity, to a greater or lesser degree, based on a variety of rationale. In Southeast Alaska, 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 61 - 
Chapter 3—Environmental Consequences

the visitor industry plays an important role as measured by a variety of economic indicators. Tourism 

impacts local communities and economies by providing employment opportunity, contributing towards 

household income, and generating local government revenue. Tourism’s potential to directly impact local 

employment by supporting commercial outfitter/guide businesses, and related jobs, is an impact that is 

considered throughout the socioeconomics section. To a lesser extent, tourism’s impact on recreational 

opportunities for local residents is also important; however, this impact is largely related to the perceived 

negative impact on recreational experiences through crowding and overcrowding. Finally, growth in 

tourism in communities with economies historically tied to traditional resource extraction activities may 

result in changes to social structure and local distribution of wealth. 

The Shoreline II Outfitter/Guide EIS is limited to the management and allocation of commercial guiding 

and outfitting activities in the shoreline zone of four ranger districts in the northern portion of the Tongass 

National Forest including Admiralty Island National Monument, Juneau Ranger District, Hoonah Ranger 

District, and Sitka Ranger District. The socioeconomic effects section concentrates mainly on the social 

and economic aspects of recreation and tourism within the aforementioned Analysis Area. However, 

localized socioeconomic issues also occur within the broader context of a socially- and economicallyinterconnected region. The importance of socioeconomics extends beyond only recreation and tourism 

concerns. Where necessary, the broader regional context and tourism-related trends will be considered, 

but in a limited manner. For more information on Southeast Alaska socioeconomic conditions, see the 

comprehensive analysis completed for the Tongass National Forest Land and Resource Management Plan 

amendment (USDA Forest Service 2015). 

The following affected environment section begins by introducing communities within the Analysis Area, 

followed by a description of important regional economic trends. The role of outfitter/guides in the 

commercial recreation industry follows. These discussions provide a foundation for the socioeconomic 

effects analyses that concludes this section. 

Affected Environment 

Northern Southeast Alaska is sparsely populated with isolated communities connected primarily via air 

and water service. The Alaska’s Marine Highway System transports people and vehicles between several 

ports in Southeast Alaska, British Columbia (Prince Rupert), and Washington (Bellingham). Haines and 

Skagway, at the northern end of the Tongass National Forest, offer access to the interior and southcentral 

Alaska via the Alaska Highway and to Canada via the Cassiar Highway. Juneau, Petersburg, and Sitka 

are the only communities in or near the project area with year-round scheduled jet service. As gateway 

community to Glacier Bay National Park, Gustavus also receives jet service, but only during the summer 

season. 

Community Overview 

The affected environment, including four ranger districts, is comprised of approximately one dozen 

incorporated and unincorporated communities with populations ranging from 15 seasonal residents to 

over 30,000 permanent full-time residents. The following community profiles summarize communitylevel socioeconomic characteristics and also briefly describe the local economy. While Baranof Warm 

Springs is not generally considered a “community” by most social scientists, it is included in this section 

because it is a significant tourism destination. Current socioeconomic information is provided by the 

Alaska Department of Commerce, Community, and Economic Development 

(https://www.commerce.alaska.gov/dcra/DCRAExternal/), the Alaska Department of Labor and 

Workforce Development (Alaska Local and Regional Information), and local and regional economic 

development organizations. 

Chapter 3 - 62 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Table 3.1: 2014 Community Populations

Community 2014 Population Estimate

City and Borough of Juneau 33,026

City and Borough of Sitka 9,061

Baranof Warm Springs Seasonal

Port Alexander 45

City of Hoonah 787

City of Angoon 416

City of Pelican 75

Elfin Cove 16

City of Tenakee Springs 128

Haines Borough 2,537

Municipality of Skagway 1,031

City of Gustavus 516

City of Kake 626

Petersburg Borough 2,964

City and Borough of Juneau

Juneau, Alaska’s state capital, is the largest community in the Analysis Areas with an estimated 

population of 33,026. The community is a service and recreation center for residents and visitors alike. 

Tourism is a significant contributor to the local economy, especially during the summer months, providing 

approximately 1,700 jobs (Bell 2015). The most popular local attractions include the Mendenhall Glacier, 

Mount Roberts Tram, Juneau Icefield, and Tracy Arm. Juneau is accessible by only air or water 

transportation. Scheduled commercial jet and air taxi service is available at the Juneau International 

Airport. Marine facilities include multiple seaplane facilities, deep draft docks, small boat harbors, and a 

state government ferry terminal. The Alaska Marine Highway System and commercial barge services 

provide year-round marine transportation access. 

City and Borough of Sitka

With an estimated population of 9,061, Sitka is the second largest community in the affected environment 

and is a popular visitor destination. Sitka is also a port of call for many cruise ships, however, total cruise 

ships has significantly declined in recent years, likely attributable to the lack of a commercial cruise ship 

dock. Passengers arriving to Sitka via cruise ship disembark via anchor and lighter boat service. Despite 

steep declines in cruise ship visitation, the leisure and hospitality industry remains an important part of 

Sitka’s economy generating a significant quantity of jobs and income. The local government operates five 

small boat harbors, a seaplane base, and an airport. The community is also served by the Alaska Marine 

Highway System and goods are transported to the community via regular commercial barge service. 

Baranof Warm Springs

Baranof Warm Springs (population 15) is situated at the northwest end of Warmsprings Bay on the eastern 

shore of Baranof Island, 20 air miles east of Sitka. The community is part of the City and Borough of 

Sitka and is considered a seasonal recreation area with approximately 15 full-time and 25 part-time 

residents during the summer season. An additional 60 individuals are estimated to visit Baranof Warm 

Springs everyday via floatplane or boat. The community and surrounding national and state lands provide 

a variety of recreation activities including hiking, fishing, boating, and natural hot springs. Popular 

geographic attractions include Baranof Lake and the Baranof River waterfall. The State of Alaska owns 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 63 - 
Chapter 3—Environmental Consequences

and maintains the boat and float dock, which attracts a significant quantity of transient pleasure and 

commercial fishing boats. 

Port Alexander

Port Alexander is one of the smallest communities in the affected areas (population 45) and is located on 

the south end of Baranof Island, 65 miles south of Sitka. Port Alexander has long provided safe harbor for 

commercial fishing boats during Chatham Strait gales and storms. Commercial fishing, subsistence 

activities, and tourism are important elements of the local economy. Access to Port Alexander is by 

floatplane or boat. The State of Alaska owns and maintains a seaplane base. Residents and visitors fly to 

Port Alexander via commercial or chartered floatplane service from Sitka, Petersburg, Wrangell, and 

Juneau. Other local facilities include a breakwater, dock, and small boat harbor. There are no roads in Port 

Alexander; skiffs provide local transportation. 

City of Hoonah

Hoonah is the largest Tlingit village in Alaska with a population of 787 year-round residents. Many 

residents maintain a subsistence lifestyle that includes hunting, fishing, and gathering edible plants and 

berries. The State of Alaska owns and operates the local airport and seaplane base. Air taxi services and 

the Alaska Marine Highway System provide regular access to Hoonah. Icy Strait Point, a restored cannery 

at Point Sophia owned by Huna Totem Corporation, opened as Southeast’s newest cruise industry port-ofcall in 2004. The introduction of cruise industry to Hoonah’s local economy has yielded multiple 

economic benefits as new retail, leisure, and hospitality businesses have opened or increased operations to 

serve visitors. Hoonah is surrounded by an extensive road system on northwest Chichagof Island. 

City of Angoon

Angoon (416 population) is a Tlingit village and the only settlement on Admiralty Island located on the 

southwest coast of Kootznahoo Inlet. Angoon is located 55 miles southwest of Juneau and 41 miles 

northeast of Sitka. Angoon residents practice a subsistence lifestyle and participate in commercial fishing. 

The community is only accessible by floatplane or boat. Scheduled and charter floatplane services are 

available from the state-owned seaplane base on Kootznahoo Inlet. Angoon's facilities also include a deep 

draft dock, small boat harbor, and Alaska Marine Highway System ferry terminal. 

City of Pelican

Pelican (population 75) is fishing community with the majority of residents participating in commercial, 

sport, and subsistence fishing activities. Located in Chichagof Island’s remote Lisianski Inlet, Pelican is 

dependent on boats, floatplanes, and the Alaska Marine Highway System for service. Daily scheduled air 

taxi service is available from Juneau and Sitka. Additional community facilities include a state-owned 

seaplane base, a small boat harbor, dock, and state ferry terminal. 

Elfin Cove

Elfin Cove (population 16), located on Chichagof Island at Cross Sound, is a fish-buying and supply 

center for the commercial fishing industry. The population is highly seasonal as residents participate in 

commercial fishing, sport fishing, and charter services. There are several lodges located in Elfin Cove that 

operate on a seasonal basis. Additional retail businesses that serve visitors also provide employment 

opportunity. A state-owned seaplane base is available with air taxi service from Juneau. Skiffs provide 

local transportation. 

City of Tenakee Springs 

Tenakee Springs (population 128) has long been considered a retirement community and summer retreat 

for Juneau and Sitka residents, with limited opportunities for local employment. While fish processing has 

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been a mainstay of its economy, tourism is growing in importance. Tenakee Springs is dependent on 

seaplanes and the Alaska Marine Highway Service for access. The City of Tenakee Springs operates a 

seaplane base and heliport with scheduled or chartered service from Juneau. The Alaska Marine Highway 

System provides access on a limited basis. Additional marine facilities include a small boat harbor and 

ferry terminal. Local transportation is primarily by bicycle or off-highway vehicle (OHV) along a threemile local path. 

Haines Borough

Haines (population 2,537) is a northern terminus of the Alaska Marine Highway System, a cruise ship 

port-of-call, and hub for transportation to and from Southeast Alaska. Many jobs are seasonal, with 

tourism businesses and access to the interior Alaska Highway system becoming increasingly important. 

Haines is a major transshipment point because of its ice-free, deep-water port and dock, and year-round 

road access to Canada and interior Alaska. Air service is provided daily via the Haines airport and 

seaplane base. 

Municipality of Skagway

Skagway (population 1,031) is an important port of call for cruise ships and a transfer site for interior bus 

tours. An estimated 831,000 passengers visited Skagway during the 2014 season (JEDC, 2014). The 

Klondike Gold Rush National Historic Park is a major attraction. The White Pass and Yukon Railroad is 

open seasonally, providing tours. The Klondike Highway and Alaska Highway provide a connection to 

British Columbia, the Yukon Territory, interior Alaska, and the lower 48 states. Skagway is accessed by 

air, road, water, and rail services. The State of Alaska owns the airport and seaplane base at the boat 

harbor with scheduled air service from Juneau. Skagway also receives regular state ferry and barge 

services. A protected small boat harbor, boat launch, and boat haul-out are also available.

While not within the defined project area, Gustavus, Kake, and Petersburg are included in the affects 

analysis as there is some reliance on the project area for subsistence activities or support of current 

outfitting and guiding businesses. 

City of Gustavus

Gustavus (population 516) is gateway community to Glacier Bay National Park and attracts a large 

quantity of seasonal residents and recreation enthusiasts. Glacier Bay National Park is the largest 

employer in the community followed by a variety of tourism establishments. Gustavus offers a stateowned airport with year-round daily air taxi service and jet service during the summer season. 

Floatplanes also land at nearby Bartlett Cove. Air traffic is relatively high during peak summer months, 

and several cruise ships include Glacier Bay in their itinerary, but do not visit the Gustavus community. 

There is a ten-mile paved road connecting the national park with the airport. Gustavus residents use 

portions of the project area for their recreation use and subsistence gathering. There are also outfitters and 

guides who use National Forest System lands who have businesses originating from Gustavus. 

City of Kake

Kake (population 626), a predominantly Tlingit village, is just south of Admiralty Island located on the 

west side of Kupreanof Island alongside Keku Strait. Kake is 38 air miles northwest of Petersburg and 95 

air miles southwest of Juneau. Kake’s economy is primarily based on timber, fishing, and subsistence. 

The community has extensively used southern Admiralty Island, the southeast side of Baranof Island, and 

the mainland near Hobart Bay for subsistence activities.

Petersburg Borough

Petersburg, including neighboring Kupreanof, is located on the northern tip of Mitkof Island (population 

2,964). Kupreanof is economically tied to Petersburg, where most residents find employment, purchase 

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goods, and attend school. Petersburg’s economy is primarily based on the commercial fishing and timber 

industries. While there is no deep-water dock suitable for large cruise ships, independent tourism 

activities make some use of the project area. Similar to Gustavus, Petersburg residents use portions of the 

project area for their recreation use and subsistence gathering. Also, there are outfitters and guides who 

use National Forest System lands who have businesses originating from Petersburg.

Region-wide Overview 

An overview of Southeast Alaska’s social and economic conditions provides context for considering the 

potential effects of proposed alternatives. The Southeast Alaska panhandle extends nearly 500 miles along 

the coast from Metlatkatla to Yakutat, encompassing 35,000 square miles of land. The region is home to 

34 communities that are located on islands and the mainland. The three largest communities – Juneau, 

Ketchikan, and Sitka – are home to 75 percent of the regional population. Alaska Natives comprise nearly 

a quarter of the region’s population. 

Southeast Alaska’s land ownership is dominated by the federal government, which manages 95 percent of 

the land base – most of which is the Tongass National Forest. The remaining federal lands are managed 

primarily by the National Park Service and the Bureau of Land Management. The State of Alaska 

manages only two percent of the total land base including Mental Health Trust Authority and University 

of Alaska lands. Local governments and Alaska Native regional and village corporations own and manage 

a limited amount of Southeast lands at less than one percent and three percent respectively. Total 

Southeast lands in other private ownership are less than one percent of the total land base. Notably, the 

lack of privately-owned land is unique in Southeast Alaska and is oftentimes viewed as an impediment to 

economic development. 

Beginning in the 1880s, Southeast’s population experienced a century of growth that intensified after 

statehood in 1959 as the workforce expanded in mining, government, fishing, tourism, and timber sectors. 

However, the 1990s and early 2000s brought challenging economic times. During the early 1990s, 

seafood and timber directly accounted for one-fifth of the regional economy. However, the following 

decade brought pulp mill and sawmill closures and plummeting salmon values. Total Southeast wages hit 

bottom in 1997, but it would be another ten years before economic recovery. 

From 2008 to 2012, Southeast Alaska’s population and economy rebounded with six consecutive years of 

growth (Southeast Conference 2014). During these years, total regional population, employment, and 

wages increased. Economic sectors with the most significant growth included seafood, health care, 

tourism, and mining. The region reached historic highs in 2012 across nearly all socioeconomic indicators 

including population, income, and employment. Growth across Southeast plateaued in 2013 and 2014. 

Economists expect Southeast’s economy will remain flat in the coming years, likely growing less than 

one percent per year. Previous regional economic drivers including government, mining, and timber will 

continue to decline while visitor industry jobs will continue to grow. 

The Tongass National Forest plays an important role in the formal and informal economies of Southeast 

Alaska. The formal economy includes those economic activities that are recorded in official statistics. 

The informal economy includes activities that are not typically recorded in official statistics. Elements of 

the informal economy include subsistence activities, in-kind contributions, non-cash income, unpaid labor 

and labor exchanges, and care-giving for the young and elderly. 

Southeast Cruise Visitor Volume

Over the past 15 years (1998 – 2014), Southeast’s total cruise passenger volume has averaged 

approximately 850,000 out-of-state visitors arriving via large and small cruise ship per year during the 

summer season (May to September). Cruise visitation peaked during 2008 with over one million 

passengers, but was followed by two consecutive years of decline (2009 and 2010) related to the national 

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economic recession and prolonged period of recovery. Excluding recession-related years (2009 and 2010), 

total cruise volume to Southeast increases approximately five percent each year. 

During the 2014 summer season, 975,000 out-of-state visitors traveled to Southeast via cruise ship 

between May and September. Notably, total cruise visitor volume decreased 24,600 (-2%) between 2013 

(999,600) and 2014 (975,000). Although 2014 yielded a two percent decrease in total cruise volume, it 

was following on the heels of a strong 2013 cruise season. It is projected Southeast cruise passenger 

volume will increase in 2015, but still not reach the peak of 2008. 

Long-term trends in Southeast’s total cruise volume generally indicate sustained growth over time, in 

most communities, with the exception of 2009 and 2010. With the exception of 2014, total visitor volume 

is again growing since the national recession and prolonged period of economic recovery, but total 

volume has yet to reach the peak of 1,030,100 million in 2008. 

Table 3-2: 1998-2014: Southeast Cruise Visitor Volume

Year Total Annual Percent Change

1998 569,000 NA 

1999 596,000 5 

2000 640,000 7 

2001 690,648 8 

2002 741,500 7 

2003 777,800 5 

2004 884,400 14

2005 948,200 7 

2006 951,400 0 

2007 1,017,000 7 

2008 1,030,100 1 

2009 1,018,700 -1

2010 875,593 -14

2011 883,000 1 

2012 937,000 6 

2013 999,600 7 

2014 975,000 -2

Average 854,997 4 

Average (exclude 2009 and 2010) 5 

Table 3.3: 2007-2013: Community Cruise Visitor Volume Percent Change, Large Vessel Only

Year Haines Juneau Ketchikan Hoonah Sitka Skagway Wrangell 

2007 -16 7 7 15 -12 7 -10

2008 81 1 4 -22 24 -5 -23

2009 -13 -1 -1 6 -23 0 -4

2010 -26 -14 -11 -9 -36 -11 1 

2011 -16 0 2 4 -10 2 22

2012 14 6 6 -6 -14 7 -86

2013 4 5 6 3 -10 9 846

Average 4 1 2 -1 -12 1 107

Source: Alaska Department of Commerce, Community, and Economic Development, 2014

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Small Cruise Market

Although Southeast’s small cruise ship industry is small, it has the potential to yield significant benefit 

because ships visit communities of all sizes. In total, there are approximately eight operators that offer 

over 100 Southeast small vessel voyages each year. During the 2011 season (May to September), an 

estimated total of 8,830 passengers visited Southeast via a small cruise ship (400 passengers or less), 

which represents approximately one percent of overall Southeast cruise visitation (DCCED, 2013). 

Reliable data regarding Southeast’s small cruise industry is limited and oftentimes privately held. 

However, trends can be observed via statewide wastewater discharge permits issued by Alaska 

Department of Environmental Conservation for vessels carrying 50 – 249 passengers. Over the past 

decade, passenger capacity widely varied and was impacted by the recession for a longer period of time. 

Excluding recession-era slumps (2009 and 2010), small ship capacity increased on average six percent per 

year. 

Table 3-4: 2004-2013: Annual Maximum Passenger Capacity, Small Vessel Only

Year Total Annual Percent Change

2004 19,160 NA

2005 21,511 12

2006 20,294 6 

2007 18,624 -8

2008 20,205 8 

2009 14,174 -30

2010 10,230 -28

2011 7,206 -30

2012 10,540 46

2013 11,474 9 

Average 15,342 -2

Average (exclude 2009 and 2010) 6 

Source: Alaska Department of Environmental Conservation

Tongass National Forest Guided Clients

Over the past ten years (2004 – 2014), an average of 550,000 individuals accessed the Tongass National Forest 

per year using guided services provided by approximately 140 commercial outfitter/guide businesses. 2005 

marked a decadal peak in client use at 616,275 clients followed directly by the decadal low at 446,592 in 2006. 

The year-to-year percent change is highly variable and ranges -38percent to +25 percent. Excluding annual 

high and low outliers during the 2004 to 2014 timeframe, guided client use of the Tongass National Forest 

increased on average two percent each year. 

Table 3-5: 2004-2014: Tongass National Forest Guided Clients

Year Total Annual Percent Change

2004 505,188 NA

2005 616,275 18

2006 446,592 -38

2007 598,051 25

2008 600,404 0%

2009 528,324 -14

2010 592,673 11

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Year Total Annual Percent Change

2011 533,385 -11

2012 545,520 2 

2013 590,275 8 

2014 579,808 -2

Average 557,863 0%

Average (excluding 2006 and 2007) 2 

Source: USDA Forest Service

Commercial Recreation and Outfitter/Guides

Providing an adequate description of the tourism industry in general, and the outfitter/guide sector in 

particular, is complicated by a number of factors. First, standard employment and income statistics do not 

specifically identify a tourism sector because much of the money spent by tourists goes to establishments 

(i.e., restaurants and hotels) that also serve other visitors or local residents. It is not possible to directly 

and routinely measure the amount of economic activity attributable to tourism in these sectors. Some 

establishments (i.e., accommodations) primarily serve visitors, but they are also commonly combined 

with other types of businesses to meet the needs of their customers. Furthermore, not all lodge visitors 

will use outfitter/guide services and not every outfitter/guide will use the Tongass National Forest to 

accommodate customers (i.e., whale watching, glacier viewing). These problems are further compounded 

by the fact that at the local level, and especially in sparsely populated areas, statistics for many subsectors are frequently unavailable to protect the privacy of individual establishments. Consequently, the 

standard set of employment and income statistics used in economic analysis are oftentimes inadequate for 

measuring and tracking overall activity in the commercial recreation sector – especially at the 

outfitter/guide level. 

Despite data challenges, the largest and fastest growing component of recreation and tourism in Southeast 

Alaska is the cruise ship industry. Early estimates indicate the 2015 cruise season brought approximately 

one million visitors to Southeast – nearly four times the cruise ship passengers reported to have visited 

Southeast Alaska two decades ago. 

Implications of Expanding Commercial Vessel Activity 

The magnitude and rapid growth of the cruise ship industry has important implications for recreation 

planning. Shore excursions have become an integral part of the cruise ship experience, providing 

increased revenues for ship operators and opportunities for local entrepreneurs. This activity has been 

concentrated at major ports of call including Ketchikan, Juneau, and Skagway and generally does not 

occur in the shoreline zone. Alongside international cruise lines, however, several small commercial 

vessel operators are active in the region, often taking customers to places bypassed by larger ships. To the 

extent that it occurs on the national forest, this activity could be affected by alternatives and the potential 

for crowding. Likewise, if growth in large cruise ship activity continues at its current rate, then limited 

capacity and crowding may force certain cruise lines to diversify activities and locations, making greater 

use of the forest-based recreation use capacity in the Analysis Area. Growth in the commercial vessel 

industry may also provide some indication of independent visitor trends in Southeast Alaska. 

Commercial Recreation Providers Survey

The number of cruise ship passengers visiting the region, however, is a poor indicator of activity in the 

outfitter/guide sector. A comprehensive survey of commercial recreation providers in Southeast Alaska, 

conducted by the Alaska Department of Commerce, Community, and Economic Development provides a 

better indicator of the industry, although it is limited to a single point in time and the data is now outdated 

(2001). The survey identified 736 commercial recreation providers working in the region during the 

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summer of 2000, but the actual number of firms engaged in providing commercial recreation services is 

probably somewhat higher, since it is not likely that the survey was able to identify all providers. Of the 

736 businesses, slightly over half (58%) were identified as providers of saltwater fishing charters and 

related services. The remainder was evenly divided among tour operators, hunting guides, and air and sea 

charters. Approximately 433 outfitter/guides were based in towns within the Analysis Area. 

Of the 736 surveys that were distributed, 193 were returned (26%). Responses indicate growth in the 

commercial recreation industry, with 68 percent of responding firms having opened business within the 

past ten years; 73 percent reported increased business since 1995. With 86 percent of respondents earning 

gross revenues of less than $100,000, most of the firms were relatively small, but six percent reported 

revenues above $1 million, including one firm with revenues exceeding $10 million. A similar 

distribution is noticeable in terms of total clients served, with the majority of firms serving fewer than 100 

clients, a smaller number of firms serving considerably larger numbers, and one firm serving clients in 

excess of 100,000 a year. The survey also asked questions regarding the sensitivity of businesses to 

competing forms of land use. High concentrations of other recreationists, particularly groups larger than 

50, were identified by respondents as one of two factors having the largest potential negative impact on 

their business. The indication here is that concentrated use in large group areas may exclude other users 

from the immediate vicinity.

On average, each survey respondent employed 40 person-months of labor, or 3.25 full-time equivalents in 

the 2000 season. This number includes both full-time and part-time workers. By multiplying the total 

sample (736 firms) by the average employment per firm (3.25 full-time equivalents), it is estimated 2,392 

full-time equivalents are directly attributable to the commercial recreation industry in Southeast Alaska. 

The estimate for firms based within the Analysis Area is 1,407 (433 x 3.25). These estimates are based on 

the assumption that: (1) the survey responses are representative of the true average for firms in the region; 

and (2) the sample of 736 includes all firms working in the region. Both of these assumptions are 

questionable, the first because no non-response-bias analysis could be conducted for the survey despite its 

relatively low response rate, and the second because it is highly unlikely that all the commercial 

recreation providers active in the region were identified. Consequently, employment estimates need to be 

viewed with caution. Nonetheless, they provide some indication of general industry size of the industry. 

Of noteworthy importance, the survey did not specifically identify outfitter/guides that access the Tongass 

National Forest. 

USFS Commercial Use Permits

A more direct, but less comprehensive source of information on outfitter/guides that depend on the 

Tongass National Forest for recreation opportunities is the actual commercial use permits data reported to 

the Forest Service. Data indicates 140 firms received permits in the Analysis Area from 2008 to 2014, 

serving 557,863 total guided clients per year, on average. Of these, a small number of firms accounted for 

the majority of the client base, and their activity was largely focused on providing hiking and sightseeing 

experiences for relatively large groups. This use was directly associated with the cruise ship industry 

either through linkages with cruise lines or because the firms in question ran their own tour boat services. 

These firms are most likely to take advantage of large group areas and other locations provided under 

some alternatives. Assuming continued industry growth, they are likely to face increasing constraints 

under the more restrictive alternatives, or more crowding under the less restrictive alternatives, especially 

in the more popular areas during the summer season. 

Additional Information

In addition to popular summer group destinations, spring hunting on Admiralty Island has also been 

identified as an area where certain planning alternatives could potentially constrain commercial activity. 

In terms of number of clients, hunting’s share of total commercial activity in the Analysis Area is 

relatively small. This is somewhat misleading, however, since guided hunting is more involved and 

expensive than day-hiking or general sightseeing, and it will thus have a proportionately larger economic 

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impact on a per-hunt basis. This is particularly true for brown bear hunting, which accounts for the large 

majority of total commercial hunting activity in the spring season. For example, a day hike may only cost 

$100 to $150 a day per client for this activity whereas a brown bear hunt may cost $1,000 to $2,000 per 

day per client to participate. 

Environmental Consequences

Direct and Indirect Effects Overview 

The potential effects of alternatives on recreation use are previously discussed in this EIS. In order to estimate 

economic effects, recreation impacts must be translated into meaningful economic measures such as 

employment or income. Social impacts on communities in the region can then be partially inferred from the 

economic impacts, although important aspects of the social impacts are difficult to precisely determine and 

may necessarily be overlooked.

As explained in the recreation section, the total capacity allocated to outfitter/guide use across the Tongass 

National Forest exceeds expected overall use. However, while the total capacity exceeds total demand, 

outfitter/guide recreation use in specific use areas may be near or at capacity in some areas. Allocations in 

these areas may be limited in some alternatives and seasons, causing some outfitter/guides to move to other 

locations if they desire to maintain or increase their operations. Accurately predicting the effects of this on 

outfitter/guide use is difficult, mainly because predicting the ability of outfitter/guides to substitute one 

location with another is not possible. Additionally, for certain uses and certain locations it is possible that 

displacement or dispersal will occur before allocated limits are reached because outfitter/guides, and their 

clientele, want to avoid crowding and protect the quality of the remote experience. The following section 

provides a qualitative discussion of the possible effects of each alternative.

Socioeconomic Effects on Non-Commercial Users

As indicated in the description of the current socioeconomic environment, the natural amenities and 

recreation opportunities in Southeast Alaska are an important factor in attracting and retaining residents in 

the region, and this is an important source of economic activity. Quantification of these relationships and 

the expected impact of the proposed alternatives on them is not feasible. It is reasonable to assume, 

however, an increase in authorized commercial recreation use will potentially impact the quality of the 

recreation experience for local residents. At the same time, non-commercial use can also lead to 

crowding, noise, and site degradation. Therefore, restricting only commercial use will not necessarily 

guarantee the quality and quantity of recreation opportunities for non-commercial users. However, when 

examining the number of persons who may be authorized by each alternative, Alternative 1 (No Action) is 

least likely to affect local non-commercial users followed closely by Alternative 3. It is anticipated 

Alternative 4 will have the greatest impact on local non-commercial users as it recommends the largest 

increase in service days be allocated for outfitter/guides. 

Socioeconomic Effects on the Commercial Recreation Industry 

If past trends continue, commercial recreation use in the Analysis Area will continue to grow, although 

perhaps not at the robust pace of past decades. If the commercial recreation industry continues to grow, 

the impacts of the alternatives and the differences among them will become increasingly important. As 

noted in prior discussion, there are some locations, depending on the alternative, that may pose some 

restrictions or limitations for future use as the managed capacity may have already been reached. 

Notably, all alternatives have the potential to accommodate additional commercial recreation use, but 

Alternative 4 is the least restrictive and allows the most room for growth in the commercial recreation 

industry. Alternatives 1 and 3 are similar in support for outfitter/guides with 47,449 and 63,940 service 

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days allocated respectively. Alternative 2, provides more room for outfitter/guide growth while also 

considering non-commercial use by local residents and independent visitors. 

The outcome of commercial recreation expansion could have a variety of unanticipated impacts 

depending on business practices, clientele preferences, and perceptions. In some places, the fastest 

growing alternative (Alternative 4) might displace existing outfitter/guides who market a more primitive 

setting near communities or in use areas with limited historical use. Notably, all alternatives would 

accommodate growth consistent with current forest plan land use designations according to standards and 

guidelines. Of noteworthy importance, the rate of commercial recreation industry growth is also largely 

dependent on access logistics, market trends, and national economic trends.

Cumulative Effects

As described earlier, tourism is a major economic driver enabling many communities in the Analysis Area

to adapt to declines in the forest products industry and variable seafood prices. Since tourism has become 

a major component of the regional economy, positive and negative effects become increasingly important 

over time. 

Alternative 1, as the “No Action” alternative with 47,449 service days, would not decrease commercial 

recreation use from current levels, but also does not allow room to grow the outfitter/guide sector. 

Alternative 3 recommends a limited overall increase in service days (63,940) while lowering commercial 

use in wilderness and remote areas. Alternative 1 and Alternative 3, for all practical purposes, do not 

significantly support growth in commercial recreation use. Alternative 2, the Proposed Action, would 

allow room to grow the outfitter/guide sector by allocating 80,305 service days, an increase from 

Alternative 1 (No Action) and Alternative 3. Alternative 4 allows the greatest room to grow the 

outfitter/guide sector with 130,655 service days, but may impact non-commercial use (i.e., local residents 

and independent visitors). 

All action alternatives allow for stability in commercial recreation use across the Analysis Area as a 

whole. Cumulative effects of the action alternatives in terms of increased employment and revenue for the 

regional economy would likely be positive. The higher the alternative allocation to commercial 

recreation, the greater potential for cumulative growth in this sector. 

Applying Adaptive Management framework when actual commercial recreation use falls within the range 

of 80 percent to 110 percent of the allocation, for any season, allows flexibility for responding to observed 

trends and supports outfitter/guide use across all alternatives. In particular, the Forest Service may 

authorize up to 110 percent of allocated commercial recreation use through Adaptive Management. This 

would authorize additional use, applicable to all alternatives, which would support additional economic 

opportunity for the commercial recreation industry. Furthermore limiting any increase to 110 percent, 

without additional NEPA review, limits any potential impact to non-commercial users.

Another less tangible but no less important factor is the amenity values and recreation opportunities 

provided by the Tongass National Forest. These values and opportunities are a major ingredient in the 

quality of life enjoyed by Southeast residents. This analysis focuses on how commercially-guided 

recreation fits within the context of non-commercial recreation and the region’s natural character, which is 

highly valued by residents and non-residents alike. Growth in regional population and increases in 

independent travelers who do not use outfitting and guiding services will continue to reduce opportunities 

for experiencing solitude in certain areas. Opportunities for solitude would still exist in the Analysis Area

but at reduced levels from those currently available. 

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Wilderness 

Introduction

This section summarizes and examines the existing condition of wilderness resources within the Shoreline 

II Outfitter/Guide EIS project area which includes the shoreline portion of six congressionally designated 

wilderness areas. This information is used to evaluate the potential effects to these wilderness resources 

from outfitter/guide use. Public scoping identified the following significant issue. 

Issue: Effects to wilderness areas and effects of outfitter/guide 

uses on non-outfitter/guide visitors 

There are concerns that the wilderness areas are already too crowded with outfitters/guides. Any 

additional increase in outfitter/guide service day allocation would negatively impact wilderness character. 

This wilderness section analyzes Shoreline II Outfitter/Guide EIS project effects on wilderness character.

Regulatory Framework 

Congress designates wilderness areas with the prescribed intent of preserving wilderness character for the 

enjoyment of present and future generations. Executive branch agencies, such as the Forest Service, 

establish, with public review, plans for implementing congressional law. Authorities expressing the intent 

to preserve wilderness character and setting standards for upholding it include: 

• The Wilderness Act of 1964, which defines the purpose and need for wilderness and gives Congress

the authority to designate wilderness areas on federal lands (U.S. Congress, 1964).

• The Alaska National Interest Lands Conservation Act of 1980, which is the congressional legislation

that designated four of the six project area wildernesses, and the Tongass Timber Reform Act of 1990,

which amended the Alaska National Interest Lands Conservation Act to designate additional

wilderness areas, including two of the project area wildernesses. (U.S. Congress, 1980 & 1990).

• The 2008 Tongass Land and Resource Management Plan (Forest Plan), which sets management

prescriptions for designated wilderness areas and affirms that congressionally designated wilderness

areas “must be managed in accordance to the direction provided through their enabling legislation”

(USDA Forest Service 2008a, pp. 1-2).

These authorities contain prescriptive language as to how Federal agencies shall administer wilderness

areas. At the forest-level and the local district-level, the Forest Service also conducts: 

• wilderness commercial needs assessments to apply administrative standards pertaining to

outfitter/guide use in wilderness, and

• monitoring to ground-truth the status and trends of wilderness character.

The Forest Plan manages wilderness through specific wilderness LUDs and standards and guidelines. The 

needs assessment for the Kootznoowoo Wilderness was completed in 2013. The needs assessments for 

Pleasant, Lemesurier & Inian Islands Wilderness, South Baranof Wilderness, West Chichagof-Yakobi 

Wilderness, Tracy Arm-Ford’s Terror Wilderness and Chuck River Wilderness were completed in 2014. 

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Wilderness Character Monitoring and Wilderness Commercial 

Needs Assessments

In order to evaluate an area’s wilderness character, the federal agencies administering wilderness have 

established protocol called wilderness character monitoring. This protocol details specific quantifiable 

aspects for five broad qualities of wilderness character encompassing the physical resources, experiential 

opportunities and managerial approaches to be found in a designated wilderness per the legal definition of 

wilderness (Landres et al. 2015). 

Wilderness commercial needs assessments have been completed for the six wilderness areas affected the 

Shoreline II Outfitter/Guide EIS project (Appendix F). These assessments determine which, if any, 

outfitter/guide services are necessary in each wilderness and their findings are summarized below in the 

Affected Environment section. 

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Figure 3-1. Wilderness areas in the Shoreline II project area.

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Table 3.6: Designated wilderness areas in the Shoreline II Outfitter/Guide EIS project area

Wilderness National Forest 

acreage1 Administering District Year of 

Designation2

Chuck River Wilderness 74,785 acres Juneau Ranger District 1990

Kootznoowoo Wilderness 967,423 acres Admiralty Island National 

Monument 1980

Pleasant/Lemusurier/Inian Islands 

Wilderness 23,267 acres Hoonah Ranger District 1990

South Baranof Wilderness 316,704 acres Sitka Ranger District 1980

Tracy Arm – Ford’s Terror 

Wilderness 648,931 acres Juneau Ranger District 1980

West Chichagof – Yakobi 

Wilderness 272,066 acres Hoonah and Sitka Ranger Districts 

1980

The outfitter/guide operations that would be authorized under the Shoreline II Outfitter/Guide EIS project 

would occur primarily within the shoreline zone of the designated wilderness areas with some activities 

extending further inland. It is worth noting that for some wilderness areas, the use areas represent a zone 

along the shore (e.g. in the Tracy Arm – Ford’s Terror Wilderness Area) whereas for other wilderness 

areas, the use area extends far inland (e.g. South Baranof Wilderness Area). See use area cards in 

Appendix A. 

Temporal Scale 

The time period of direct, indirect and cumulative effects from this project are estimated to be ten years, 

which is the maximum term of an outfitter/guide permit. This analysis variable is also defined by the 

spring, summer, fall, and winter seasons for a full calendar year because outfitter/guide use has been 

occurring, or has been requested, in all four seasons. 

Resource Indicators and Units of Measure 

Wilderness Character Qualities, Indicators and Measures

The wilderness resource is defined by the condition and trends of the area’s wilderness character (U.S. 

Congress, 1964; Landres et al. 2015). This section describes the existing conditions of the wilderness 

character for the six wilderness areas in the project area. It then assesses the effects of the Proposed 

Action and alternatives on the wilderness character for the six wilderness areas. 

The federal land management agencies charged with managing wilderness have identified five qualities 

that constitute wilderness character, using terms from the legal definition of wilderness in the Wilderness 

Act (Landres et al. 2015): 

• Untrammeled: Wilderness is essentially unhindered and free from human control or manipulation.

• Natural: Wilderness ecological systems are substantially free from the effects of modern civilization.

• Undeveloped: Wilderness retains its primeval character and influence, and is essentially without

permanent improvement or modern human occupation.

• Outstanding Opportunities for Solitude or a Primitive and Unconfined Type of Recreation:

Wilderness provides outstanding opportunities for solitude or primitive and unconfined recreation.

1 USDA Forest Service. 2014. Land Areas of the National Forest System: As of September 2013. Washington Office Lands Report FS-383.

2 www.wilderness.net

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• Other Features of Value: Other features of value integral to wilderness character are identified and

threats monitored.

Wilderness character monitoring assesses the conditions, trends and data adequacy pertaining to these 

qualities. This monitoring “is organized around a hierarchical framework that divides wilderness character 

into successively finer components” (Landres et al. 2015). The five qualities of wilderness character 

consist of subparts called indicators which in turn are composed of finer elements called measures 

(Landres et al. 2015).

Overall wilderness character is gauged by weighing measures against each other and deriving a summary 

of their parent indicator’s condition, trend and data adequacy (Landres et al. 2015). Indicators are then 

weighed against each other to derive a summary of their parent quality. Finally the qualities are weighed 

against each other to derive the condition, trend and data adequacy of overall wilderness character.

In order to weigh measures, indicators and qualities using different metrics against each other, numerical 

scores from one to three are assigned for the condition, trend and data adequacy ratings of each measure. 

Good conditions are given a numerical value of 3, moderate concern a 2, and significant concern a 1. 

Improving trends score a 3, stable trends a 2 and degrading trends a 1. Similarly, good data adequacy 

scores a 3, medium data adequacy a 2, and low data adequacy a 1. Once all of the measures conditions, 

trends and data adequacies have been scored, the numbers are averaged under each indicator to tally the 

indicator scores. Once all of the indicators have been scored, the indicators are averaged to generate a 

quality score. Once the qualities have been scored, they are averaged to generate the overall wilderness

character scores. Averages are carried out to the hundredths decimal place to better demonstrate how 

changes in measures ripple upward through the wilderness character monitoring protocol. It is important 

to understand that the indicator, quality and wilderness character ratings all derive from the averages 

generated from the initial scores for measure conditions, trends and data adequacies. 

This wilderness analysis relies on the condition ratings more than the trend and data adequacy ratings. 

This is because the resource specialists have more expertise and data evaluating the conditions of their 

resources and discerning factors that contribute to resource conditions. Trends and data adequacy are 

important and still summarized, but emphasized less. As wilderness character monitoring protocol is 

developed and implemented further, trends and data adequacy should play increasingly relevant roles.

Wilderness Character Monitoring for the Shoreline II Outfitter/Guide EIS

Wilderness Areas

Wilderness character monitoring is based on a protocol assessing wilderness character qualities, indicators 

and measures. Broad national-scale protocol is outlined in Keeping It Wild: An Interagency Strategy to 

Monitor Trends in Wilderness Character Across the National Wilderness Preservation System (Landres et 

al., 2008), The USDA Forest Service Technical Guide for Monitoring Selected Conditions Related to 

Wilderness Character (USDA Forest Service, 2009) and Keeping It Wild II: An Updated Interagency 

Strategy to Monitor Trends in Wilderness Character Across the National Wilderness Preservation System 

(Landres et al., 2015) (note: the Forest Service Technical Guide is also being revised currently). The 

Tongass Forest Plan specifies that Tongass National Forest wilderness administration must “protect and 

perpetuate wilderness character” and use the Untrammeled, Natural, Undeveloped and Outstanding 

Opportunities for Solitude or a Primitive and Unconfined Type of Recreation qualities to evaluate its 

status (USDA Forest Service, 2008, 3-24). The 2012 Wilderness Character Monitoring Plan for the 

Tongass National Forest (hereafter Tongass Wilderness Character Monitoring Plan) describes these 

qualities and lists Forest-level indicators and measures (USDA Forest Service, 2012).

Not all qualities, indicators and measures that comprise wilderness character for an area will be affected 

by the Shoreline II Outfitter/Guide EIS project’s Proposed Action and alternatives. The Environmental 

Consequences section explains why certain components will be unaffected. In particular, the 

Untrammeled Quality and Undeveloped Quality are unaffected by this project, as are the Natural and 

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Other Features of Value Qualities, assuming proper mitigations, monitoring and Adaptive Management 

occur. Additionally, the Natural Quality and Other Features of Value Quality contain indicators and 

measures that are assessed in other sections of the Shoreline II Outfitter/Guide EIS, Chapter 3, as well as 

in the resource reports prepared by appropriate specialists (e.g. wildlife, botany, air quality, and heritage 

and subsistence specialists) available in the project record. In these instances, only the findings will be 

summarized here and the relevant reports can be referenced for further detail. 

Thus the focus of analysis for this report will be on the Outstanding Opportunities for Solitude or a 

Primitive and Unconfined Type of Recreation Quality.

How This Analysis Uses Wilderness Resource Indicators and Units of 

Measure

The wilderness character monitoring protocol adopted in this section uses both national protocol from 

Keeping It Wild I & II (Landres et al., 2008 & Landres et al., 2015) and forest protocol from the Tongass 

Wilderness Character Monitoring Plan (USDA Forest Service, 2012). The following Outstanding 

Opportunities for Solitude measures from the Tongass Wilderness Character Monitoring Plan were 

modified for this report:

• Number of days with 0, 1-2, and 3+ groups encountered was replaced with Number of groups

encountered per day. Reason: the number of onshore encounters is regularly less than three and what

value would be gained by delineating such detail is off-set by the copious amount of data processing

necessary to obtain it.

• Number of days of administrative use was dropped. Reason: The Shoreline II Outfitter/Guide EIS

project is not expected to affect this measure.

• Percent of encounters involving motorized-mechanized transport was dropped. All onshore

encounters recorded were of people hiking/walking and there is no expectation of encountering

motorized-mechanized transport within the Shoreline II Outfitter/Guide EIS wilderness areas (the

environmental analysis is only considering non-motorized access of upland wilderness from marine

shoreline zones) as a result of Shoreline II Outfitter/Guide EIS allocations.

• Number of trail users is replaced by number and condition of user created trails. Reason: the Forest

Service does not have good trail use data and the bigger wilderness resource concern is the

proliferation of user created trails due to increased use.

• Percent of days monitored with Low-intensity or no encounters was added as a measure to assess how

well wilderness areas are meeting the standard for Outstanding Opportunities for Solitude detailed in

the Tongass Wilderness Character Monitoring Plan (USDA Forest Service, 2012).

Affected Environment

Descriptions of the Shoreline II Outfitter/Guide EIS wilderness 

areas 

Tracy Arm – Ford’s Terror Wilderness Area 

The Tracy Arm-Ford’s Terror Wilderness is about 45 miles southeast of Juneau. It encompasses 653,179 

acres of the rugged mainland Coast Mountains bordering Holkham Bay, on the east side of Stephens 

Passage. It surrounds three dramatic glacial fjords—Tracy and Endicott Arms and Ford’s Terror—and 

extends eastward to the glaciers and high mountains of the Canadian border. 

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Tracy Arm-Ford’s Terror is mountainous and heavily glaciated, with most of its terrain above treeline. 

Although a few low valleys host mature forest, most land along shore is covered in an early-successional 

mix of alder, willow and young spruce. Steep shores, swift streams, cliffs, narrow gorges, glaciers and 

thick vegetation make travel on land difficult. The wilderness has no cabins or maintained trails. 

However, protected waters, spectacular scenery and small beaches contribute to ideal sea kayaking in a 

temperate rain forest.

For many visitors this wilderness is all about glaciers, both present and past. In addition to three tidewater 

glaciers that regularly calve ice bergs into the ocean, the surrounding mountains serve as an example of 

Pleistocene glaciation, with rounded domes, sheer walls and deep, U-shaped valleys.

Chuck River Wilderness Area 

Chuck River reflects the rise of wilderness appreciation in modern society. The local Tlingit practiced 

trapping and fishing in Windham Bay. Settlers arrived in the 1890s seeking gold. They dug mines into the 

mountains, laid roads through the forests and built structures along the shore. The mining boom subsided 

around the 1920s, people moved on and their developments fell into disrepair. In the 1980s, timber 

resources were marked and potential roads were staked. But before it was logged, the American people 

embraced a new value - that of wilderness. In order to protect old-growth forest and riparian habitat, 

Congress designated the Chuck River Wilderness in 1990. The section adjoining the Tracy Arm – Ford’s 

Terror Wilderness completes the protection of spectacular Endicott Arm. Many highlights for visitors to 

this area are its tranquility, scenic beauty, aged forests, healthy fish runs, hunting opportunities and 

protected anchorages.

The Tracy Arm – Ford’s Terror and Chuck River Wilderness Areas include three use areas: 

• 01-05D Tracy Arm

• 01-05E Fords Terror

• 01-05F Endicott Arm

South Baranof Wilderness Area 

The South Baranof Wilderness includes over 300,000 acres of coastal temperate rainforest. Numerous 

bays along the area’s rugged shoreline cut deep into the mountainous interior of Baranof Island, providing 

safe anchorage for boats in an otherwise exposed ocean environment. The community of Sitka lies 

approximately 19 miles to the north of the South Baranof Wilderness and Port Alexander is approximately 

20 miles to the south.

At 4,528 feet, Mount Ada is the highest peak in the South Baranof Wilderness. On the eastern side of 

Baranof Island, Mount Ada’s peak lies less than three miles from saltwater. Permanent snowfields and 

active glaciers blanket the higher elevations and several high-elevation lakes offer outstanding recreation 

opportunities. The South Baranof Wilderness is part of the temperate rainforest that extends along the 

Pacific coastline from northern California to Cook Inlet, Alaska. Most of the area's lower-elevations offer 

old-growth western hemlock and Sitka spruce, with a scattering of yellow cedar and mountain hemlock. 

The South Baranof Wilderness receives an average of 200 inches of precipitation per year with 

temperatures ranging from mid-20s to high 60s. Wildlife includes brown bears, Sitka black-tail deer, 

mountain goat, mink, marten, and river otters; trout and salmon (seasonally); as wells as eagles and 

shorebirds. Seals, sea lions, whales, and a large population of sea otters are often seen offshore, and crab, 

shrimp, herring, salmon and halibut are harvested from the ocean. 

The area supports a full range of life zones, from the marine to the alpine. It is this combination of rugged 

mountains, glaciers, dense rainforest, and the sea that gives the South Baranof Wilderness its variety and 

high value as wilderness.

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The South Baranof Wilderness consists of 2 use areas: 

• 04-01A Gut Bay, Baranof, and

• 04-02B Whale Bay.

Kootznoowoo Wilderness Area 

Admiralty Island has long been associated with the brown bear (Urus arctos). The original name, The 

Bear Fort, indicates early Tlingit were well aware of the dense population of brown bear that 

distinguishes this island from others. The northern edge of the Kootznoowoo Wilderness lays just 12 boatmiles south of the capital city of Juneau, Alaska. From here, Kootznoowoo Wilderness stretches another 

81 miles south to Frederick Sound. Paddlers on the Cross Admiralty Canoe Route cross six lakes and find 

abundant solitude as they traverse from the traditional Tlingit village of Angoon to the historic homestead 

of Allen Hasselborg (the bear man of Mole Harbor), a distance of 27 miles. Totaling 956,255 acres (about 

1,500 square miles) this Wilderness Area supports approximately one bear per square mile by latest 

estimate, one of the densest populations known. 

Coastal forests of massive Sitka spruce and western hemlock dominate, and while Sitka black-tailed deer 

stay well hidden in the dense forest, bald eagles are easily found in treetops along most beaches. Harbor 

seals, Steller sea lions, and humpback whales feed near rafts of sea ducks such as scoters and harlequins. 

The forest floor lays thickly covered with mosses and blueberry, while muskegs open the tall forest 

canopy to sedge and sphagnum bogs. Rocky spires break through along the island's high crest with peaks 

above 3,000 feet. Protected as Admiralty Island National Monument in 1978, almost all but the northern 

end of the island was designated Wilderness in 1980 under the Alaska National Interest Lands 

Conservation Act. Additional lands around Admiralty Cove and Young Lake were added as wilderness in 

1990 under the Tongass Timber Reform Act. 

The Kootznoowoo Wilderness Area consists of these use areas: 

• 04-05A SW Admiralty,

• 04-06A Pybus Bay,

• 04-06B Eliza Harbor,

• 04-07A Gambier Bay,

• 04-07B Cross-Admiralty Canoe Route,

• 04-08 NE Admiralty,

• 04-09A Seymour Canal,

• 04-09B Pack Creek Zoological Area,

• 04-10A Greens Creek, and

• 04-10B NW Admiralty.

West Chichagof – Yakobi Wilderness Area 

The West Chichagof-Yakobi Wilderness Area includes over 260,000 acres of coastal temperate rainforest, 

bounded to the west by the Gulf of Alaska. The Wilderness Area spans approximately 60 miles of 

coastline and includes hundreds of smaller islands in close proximity to Chichagof and Yakobi Islands. 

The communities of Sitka and Hoonah are each about 30 miles distant from their nearest respective access 

to the wilderness. The village of Pelican lies only a short distance from the West Chichagof-Yakobi 

Wilderness Area boundary.

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The West Chichagof-Yakobi Wilderness Area consists of numerous sheltered bays and a wild outer coast. 

Western hemlock and Sitka spruce forests cover approximately one-third of the West Chichagof-Yakobi 

Wilderness Area, with muskeg, alpine, and estuarine vegetation making up the rest. Sitka black-tailed 

deer are common and brown bears are frequently sighted, along with an abundance of smaller furbearing 

animals. Migratory waterfowl frequent the West Chichagof-Yakobi Wilderness Area in large numbers and 

marine mammals, including sea otters, sea lions, and seals, can be seen.

Long before the Russians came, Tlingit Indians began utilizing this area for its rich natural resources. 

Centuries of human habitation have left behind mining cabins and equipment, remnants of fox farms, 

small communities, and Tlingit village sites. Remnants of past and current human presence include 

several mine adits, cabins, fish weirs, and trails.

The West Chichagof-Yakobi Wilderness Area consists of 4 use areas: 

• 04-14 Slocum Arm,

• 04-15B West Yakobi Island,

• 04-15C Stag Bay, and

• 04-15D Portlock Harbor.

Pleasant, Lemesurier and Inian Islands Wilderness Area

In 1990 Congress designated 23,096 acres located north of Hoonah as the Pleasant/Lemesurier/Inian 

Islands Wilderness. These scenic islands are located along the Icy Strait corridor near the entrance to 

Glacier Bay National Park and Preserve, north of the City of Hoonah. 

Pleasant Island, the easternmost island, lies fairly flat with dense forest and vast muskegs; its highest 

point, The Knob, is at approximately 600 feet. At least two of the island’s lakes and three of its streams 

hold fresh water. It is about 2 miles from the City of Gustavus across Icy Passage and accessible by boat. 

Residents hunt and gather here. 

Lemesurier Island, the next island west is mostly rolling terrain with one peak reaching 2,180 feet above 

sea level–high enough to claim sub-alpine habitat. It is densely forested with several freshwater streams 

and small lakes. Hoonah Ranger District maintains a primitive trail that leads to a lake above Jacks Cove. 

This lake has no outlet and is surrounded by carbonate bedrock, which suggests a viable karst system. 

There are two parcels of private land on this island. 

The Inian Islands, westernmost of this Wilderness, are made up of four main islands with four smaller 

satellites. A short distance north off of the Inian Peninsula and the community of Elfin Cove, the “Inians” 

rise to about 1,000 feet on the largest island. Substantial tree cover provides habitat for deer and small 

mammals. 

The Pleasant, Lemesurier and Inian Island Wilderness Area includes Use Area 04-16D with the same 

name as the Wilderness Area.

Wilderness Commercial Needs Assessment Findings for the 

Shoreline II Outfitter/Guide EIS wilderness areas 

(Full Wilderness Commercial Needs Assessments are in Appendix F).

Tracy Arm – Ford’s Terror and Chuck River Wilderness Areas

The Tracy Arm – Ford’s Terror and Chuck River Wilderness Commercial Needs Assessment holds that 

four broad categories of outfitter/guide services – remote setting nature tours, camping, freshwater fishing 

and hunting – help realize the public purposes of wilderness and are compatible with the preservation of 

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wilderness character (USDA Forest Service, 2014c). These categories cover traditional wilderness 

pursuits, such as hiking, wildlife viewing, photography, and sightseeing, kayak camping, fishing and 

hunting game. 

South Baranof Wilderness Area 

The South Baranof Wilderness Commercial Needs Assessment holds that four broad categories of 

outfitter/guide services—remote setting nature tours, camping, freshwater fishing and hunting for deer, 

mountain goat and brown bear—help realize the public purposes of wilderness and are compatible with 

the preservation of wilderness character (USDA Forest Service, 2014b). These categories cover traditional 

wilderness pursuits, such as hiking, wildlife viewing, photography, and sightseeing, kayak camping, 

fishing and hunting game. 

Kootznoowoo Wilderness Area 

The Kootznoowoo Wilderness Commercial Needs Assessment holds that four broad categories of 

outfitter/guide services – remote setting nature tours, camping, freshwater fishing and hunting – help 

realize the public purposes of wilderness and are compatible with the preservation of wilderness character 

(USDA Forest Service, 2013a). These categories cover traditional wilderness pursuits, such as hiking, 

wildlife viewing, photography, and sightseeing, kayak camping, fishing and hunting game. 

West Chichagof –Yakobi Wilderness Area

The West Chichagof – Yakobi Wilderness Commercial Needs Assessment holds that five categories of 

outfitter/guide services – remote setting nature tours, camping, freshwater fishing, brown bear hunting 

and deer hunting – help realize the public purposes of wilderness and are compatible with the preservation 

of wilderness character (USDA Forest Service, 2014a). These categories cover traditional wilderness 

pursuits, such as hiking, wildlife viewing, photography, and sightseeing, kayak camping, fishing and 

hunting game. 

Pleasant, Lemesurier and Inian Islands Wilderness Area

The Pleasant, Lemesurier & Inian Islands Wilderness Commercial Needs Assessment holds that two 

broad categories of outfitter/guide services – remote setting nature tours and camping – help realize the 

public purposes of wilderness and are compatible with the preservation of wilderness character (USDA 

Forest Service, 2014c). These categories cover traditional wilderness pursuits, such as hiking, wildlife 

viewing, photography, sightseeing, and boat- or kayak-based camping. 

Wilderness Character Summary for the Shoreline II 

Outfitter/Guide EIS Wilderness Areas 

Untrammeled Quality

The untrammeled quality essentially gauges how much management/people intervene in a wilderness

area’s affairs. The quality has two indicators: actions authorized by the Forest Service and actions 

unauthorized by the Forest Service. The former covers three measures assessing trammeling actions of 

vegetation management, fish/wildlife/habitat management and fire suppression. Examples include 

invasive weed treatments, installing fish passages, and capturing wildlife for research purposes. The latter 

indicator covers unauthorized trammeling actions such as people clearing out vegetation to make a trail or 

poaching wildlife. In general, the measures for this quality score high when there are no or few 

trammeling actions and score worse the more trammeling actions occur.

The following 4 wilderness areas have an untrammeled quality in good condition with a stable trend and 

medium data adequacy: 

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Tracy Arm–Ford’s Terror and Chuck River Wilderness Areas

2 annual trammeling actions: treatment of two invasive plants - white clover and ox-eye daisies. 

South Baranof Wilderness Area

3 instances of illegal tree removal in 2012 at Port Banks and Sandy Bay. 

Pleasant, Lemesurier and Inian Islands Wilderness Area

1 instance (year undetermined but recent) of unauthorized logging of downed trees in a stream. 

The 3 wilderness areas mentioned above have few recorded trammeling actions over the last 5 years 

which grants the good condition and stable trend. The data adequacy is medium as thresholds need 

refining and trends need validating 

Two wilderness areas have an untrammeled quality of moderate concern with a stable trend and medium 

data adequacy:

Kootznoowoo Wilderness Area

• Multiple instances of: salmon containment at Kanalku Creek fish weir; brown bear captures and

collarings, and invasive weed treatments in Whitewater Bay, Gambier Bay and Seymour Canal.

• Other actions include the alteration of Kanalku Falls facilitating fish passage and the ongoing

habituation of wild bears in the Pack Creek Zoological Area.

West Chichagof–Yakobi Wilderness Area

• Multiple instances of salmon containment and tagging at Ford Arm fish and invasive weed treatments

at Rust Lake and White Sulphur.

• Instances of illegal tree cutting at Ford Arm and Falcon Arm.

The 2 wilderness areas mentioned above have more numerous trammeling actions over the last five years 

earning a score of moderate concern. The trends are considered stable since weed eradication and salmon 

management are likely to continue for the foreseeable future. The data adequacy is medium as thresholds 

have not been established and trends need validating.

Undeveloped Quality

The undeveloped quality generally refers to a wilderness area retaining its primeval character and 

influence due to a lack of installations and structures, an absence of normally prohibited motorized 

equipment and mechanical transport, and a lack of other representations of human occupancy and 

modification. In general, the measures for this quality score highly when there are fewer developments 

and instances of exceptional motorized or mechanical use. The quality has three indicators:

• Non-recreational Buildings and Non-recreational Installations and Developments, examples include

non-public use cabins, administrative or research camps, radio repeaters and navigational aids;

• Inholdings, evaluating level of development and occupancy of non-national forest lands in

wilderness; and

• Use of Motor Vehicle (administrative, emergency and unauthorized use), Motorized Equipment or

Mechanical Transport not allowed by the Alaska National Interest Lands Conservation Act

The following 2 wilderness areas have an undeveloped quality in good condition with a stable trend and 

medium data adequacy. 

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South Baranof Wilderness Area

• Structures/installations include the Falls Lake Fish Weir; the old Sandy Bay Hatchery site with

remnant materials left on site, and the Patterson Bay Net Pen Shoreties. No inholdings. Evidence of

unauthorized chainsaw use.

Pleasant, Lemesurier and Inian Islands Wilderness Area

• Four inholdings with 12 structures. Evidence of unauthorized chainsaw use where downed trees were

logged.

One Wilderness Area has an Undeveloped Quality of moderate concern with a stable trend and medium 

data adequacy. 

West Chichagof–Yakobi Wilderness Area

• Eight separate developments and seven installations related to mines, weirs and cabins. Substantial

inholdings include the Chichagof Mine and other parcels. The Alaska Department of Fish & Game

Ford Arm temporary camp has been given administrative use of a generator for the last 3 years. In

2012 there was also an instance of an emergency helicopter landing, as well as an unauthorized

chainsaw use.

The cumulative sum of these measures and indicators results in an Undeveloped Quality of moderate 

concern with a stable trend. The data adequacy is regarded as medium due to thresholds needing refining

and unconfirmed trends. 

One wilderness area has an undeveloped quality of moderate concern with a stable trend and low data 

adequacy. 

Tracy Arm–Ford’s Terror and Chuck River Wilderness Areas

Multiple instances of structures and installations related to old mine claims, timber camps, navigational 

aids and research. Numerous inholdings including several with cabins and one recently renovated and 

operating outfitter/guide lodge. A few recent episodes of unauthorized and emergency helicopter use in 

the Tracy Arm – Ford’s Terror Wilderness Area.

The lack of consolidated data and measure scores, along with unconfirmed trends and thresholds needing 

refining, combined with known development and uses, contribute to the quality condition warranting 

moderate concern with a stable trend based on low data adequacy.

One Wilderness Area has an Undeveloped Quality of significant concern with a stable trend and medium 

data adequacy. 

Kootznoowoo Wilderness Area

Nineteen authorized cabins, 10 unauthorized crab pot storage sites with hundreds of crab pots, several 

authorized tent platforms, the Pack Creek administrative site, an ADF&G fish research camp and weir, an 

authorized lodge, a radio repeater, several authorized communications sites and many navigational 

markers. Over 30,000 acres of inholdings including large clearcut areas and some cabins and other 

structures. In 2013 there was also an instance of an unauthorized helicopter landing from a film crew. 

Authorized cabin owners use chainsaws and generators commonly which constitute administrative use.

The cumulative sum of these measures and indicators is an Undeveloped Quality for Kootznoowoo 

Wilderness Area warranting significant concern with a stable trend. The data adequacy is regarded as 

medium due to thresholds needing refining and unconfirmed trends. 

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Natural Quality

Natural quality represents the degree to which wilderness ecological systems are substantially free from 

the effects of modern civilization. This quality has two indicators: 1) Plant & Animal Species & 

Communities, and 2) Physical Resources. The Plant & Animal Species & Communities Indicator has five 

measures assessing disturbance to rare and sensitive plants, extirpated fish and wildlife species, number of 

non-native plants, extent of non-native plants and number of non-indigenous fish and wildlife species. 

The Physical Resources Indicator has two measures assessing air quality: one measuring contaminant 

concentration in lichen tissue common to all wilderness areas, and for wilderness areas where nearby 

emissions might affect the scenic purpose of wilderness, another measure assessing the number of 

readings of interest exceeding regulated opacity limits from cruise ship stacks. In general the relative 

absence of disturbance, extirpations, non-natives, contaminants and readings of interest increases the

scores whereas the presence of these elements lowers scores.

Five wilderness areas have a natural quality in good condition with a stable trend and medium data 

adequacy: 

Tracy Arm–Ford’s Terror and Chuck River Wilderness Areas

No extirpations and no known non-native wildlife species. Unknown rare plant disturbances and extent of 

non-native plants: at least three invasive species. Good scores for air quality contaminants and readings of 

interest. 

South Baranof Wilderness Area

No extirpations and no non-native wildlife species. Unknown rare plant disturbances and extent of nonnative plants: at least three invasive species. Good scores for air quality contaminants.

West Chichagof–Yakobi Wilderness Area

No extirpations and no known non-native wildlife species. Unknown rare plant disturbances and extent of 

non-native plants: at least 13 invasive species documented. Good scores for air quality contaminants. 

Pleasant, Lemesurier and Inian Islands Wilderness Area

No extirpations and no non-native wildlife species. Unknown rare plant disturbances and extent of nonnative plants: at least one sensitive plant species and one invasive species. Good scores for air quality 

contaminants.

At present, the good scores for the fish & wildlife measures and the air quality measures offset moderate 

concern scores for the plant measures resulting in the natural quality’s overall good condition. Incomplete 

data combined with thresholds needing refining and unconfirmed trends result in the natural quality’s 

stable trend and medium data adequacy.

One wilderness area has a natural quality in good condition with an undetermined trend and low data 

adequacy. 

Kootznoowoo Wilderness Area

No extirpations and no known non-native wildlife species, though reports of a feral dog-pack are 

occasionally received (from Southern Admiralty Island). Unknown rare plant disturbances and extent of 

non-native plants: at least six invasive species documented with four other species reported. It is unclear 

if recent inventories of increased extents of invasive weeds reflect new proliferation or new recording of 

extant populations. Good scores for air quality contaminants. 

At present, the good scores for the fish and wildlife measures and the air quality measures offset moderate 

concern and significant concern scores for the plant measures resulting in the Natural Quality’s overall 

good condition. Insufficient data for large area combined with inconsistent monitoring, thresholds

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needing refining and unconfirmed trends result in the Natural Quality’s undetermined trend and low data 

adequacy. 

Outstanding Opportunities for Solitude or a Primitive and Unconfined Type 

of Recreation 

The Outstanding Opportunities for Solitude or a Primitive and Unconfined Type of Recreation Quality 

represents the experiential opportunities wilderness affords. The quality has four indicators assessing 

opportunities for solitude, primitive and unconfined recreation. The first two indicators, Management 

Restrictions on Visitor Behavior and Facilities that decrease self-reliant recreation, are discussed briefly 

first. A more detailed discussion follows examining the measures of the Solitude Indicators, as these are 

the ones raised as a significant issue by the public for how they might be affected by the Shoreline II 

Outfitter/Guide EIS project. This subsection concludes with a summary of the quality condition, trend and 

data adequacy for the six wilderness areas.

Unconfined Indicator: Management restrictions on visitor behavior

This indicator measures management restrictions on visitor behavior. As all six Shoreline II 

Outfitter/Guide EIS wilderness areas have minimal restrictions on visitors (only a group size limit of 12 

and a required permit for Pack Creek with a daily quota of 24 during the peak summer season in the 

Kootznoowoo Wilderness Area but otherwise no required permits, quotas, closures or assigned sites), this 

indicator scores a good condition for all areas with a stable trend but with medium data adequacy due to 

thresholds and trends needing refining. 

Primitive Indicator: Facilities that decrease self-reliant recreation

This indicator gauges facilities that decrease self-reliant recreation. This includes national forest system 

trails and their number of constructed features, user-created facilities (trespass cabins and shelters), Forest 

Service-provided public use cabins and installations/structures such as boxes or cables for securing food. 

For this indicator, five wilderness areas – all but Kootznoowoo Wilderness Area- score a good condition 

with a stable trend and medium data adequacy due to the low number of facilities, features and 

installations:

Tracy Arm–Ford’s Terror and Chuck River Wilderness Areas

No public use cabins; no trails; two installed cables for hanging food; no known user-created facilities.

South Baranof Wilderness Area

Three public use cabins; one system trail (1.1 miles) with one feature; no known user-created facilities.

West Chichagof–Yakobi Wilderness Area

Four public use cabins; six system trails (11.3 miles) with 15 features; no known user-created facilities.

Pleasant, Lemesurier, Inian Islands Wilderness Area

No public use cabins; one system trail (1/2 mile) with one sign; no known user-created facilities.

For the primitive recreation indicator, one wilderness area warrants significant concern with a stable trend 

and medium data adequacy:

Kootznoowoo Wilderness Area 

Thirteen public use cabins; 10 public use shelters; 16 system trails (29.25 miles) with approximately 900 

constructed features; one trespass cabin removed in 2015 and another known trespass cabin still standing. 

The medium data adequacy reflects incomplete monitoring combined with thresholds needing refining

and unconfirmed trends. 

Chapter 3 - 86 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

The two solitude indicators and their measures are: 

Solitude Indicator: Remoteness from sights and sounds of human activity

inside the wilderness

• Number of cabin reservations (i.e., number of nights)per year;

• Number of outfitted/guided visitors in service days per year;

• Average number of groups encountered per day in wilderness;

• Number and condition of recreation sites; and

• Number of miles and condition of user created trails.

Solitude Indicator: Remoteness from sights and sounds of human activity 

adjacent to the wilderness

• Average number of groups encountered per day adjacent to wilderness (saltwater, air, non-wilderness

lands); and

• Percentage of days monitored with low-intensity or no encounters.

Four wilderness areas have an Outstanding Opportunities Quality in good condition with an undetermined 

trend and medium data adequacy. 

• Tracy Arm–Ford’s Terror and Chuck River Wilderness Areas

• West Chichagof–Yakobi Wilderness Area

• Pleasant, Lemesurier and Inian Islands Wilderness Area

Two wilderness areas have an Outstanding Opportunities Quality warranting moderate concern with an 

undetermined trend and medium data adequacy. 

• Kootznoowoo Wilderness Area

• South Baranof Wilderness Area

Table 3-7: A Summary of how the six wilderness areas score for the indicators and the overall outstanding 

opportunities quality

Indicator

Tracy Arm – 

Ford’s Terror & 

Chuck River 

Wilderness

Areas

South Baranof 

Wilderness

Area

Kootznoowoo 

Wilderness Area

West Chichagof – 

Yakobi 

Wilderness Area

Pleasant, 

Lemesurier & 

Inian Islands 

Wilderness Area

Solitude: 

Remoteness 

from sights and 

sounds of 

human activity

inside the 

wilderness

Good condition

(2.67)

Undetermined 

trend

Medium adequacy

Moderate 

concern

(2.33)

Undetermined 

trend

Low adequacy

Moderate concern

(2.33)

Undetermined 

trend

Low adequacy

Good condition

(2.50)

Undetermined 

trend

Medium adequacy

Good condition

(3.00)

Undetermined trend

Low adequacy

Solitude: 

Remoteness 

from sights and 

sounds of 

human activity 

adjacent to the 

wilderness

Moderate concern

(1.50)

Undetermined 

trend

Medium adequacy

Significant 

concern

(1.00)

Undetermined 

trend

Medium 

adequacy

Moderate concern

(1.50)

Undetermined 

trend

Medium adequacy

Moderate concern

(2.00)

Undetermined 

trend

Medium adequacy

Significant concern

(1.00)

Undetermined trend

Low adequacy

Shoreline II Outfitter/Guide DEIS Chapter 3 - 87 - 
Chapter 3—Environmental Consequences

Indicator

Tracy Arm – 

Ford’s Terror & 

Chuck River 

Wilderness

Areas

South Baranof 

Wilderness

Area

Kootznoowoo 

Wilderness Area

West Chichagof – 

Yakobi 

Wilderness Area

Pleasant, 

Lemesurier & 

Inian Islands 

Wilderness Area

Primitive 

Recreation: 

Facilities that 

decrease selfreliant 

recreation

Good condition

(3.00)

Stable trend

Medium adequacy

Good condition

(3.00)

Stable trend

Medium 

adequacy

Moderate concern

(1.50)

Stable trend

Medium adequacy

Good condition

(3.00)

Stable trend

Medium adequacy

Good condition

(3.00)

Stable trend

Medium adequacy

Unconfined 

Recreation: 

Management 

restrictions on 

visitor behavior

Good condition

(3.00)

Stable trend

Medium adequacy

Good condition

(3.00)

Stable trend

Medium

adequacy

Good condition

(3.00)

Stable trend

Medium adequacy

Good condition

(3.00)

Stable trend

Medium adequacy

Good condition

(3.00)

Stable trend

Medium adequacy

Overall 

Quality 

Rating

Good condition

(2.54)

Undetermined 

trend

Medium adequacy

Moderate 

concern

(2.33)

Undetermined 

trend

Medium 

adequacy

Moderate Concern

(2.08)

Undetermined 

trend

Medium adequacy

Good Condition

(2.63)

Undetermined 

trend

Medium adequacy

Good Condition

(2.50)

Undetermined trend

Medium adequacy

Other Features of Value Quality

Other Features of Value Quality represents unique features that are integral to a wilderness area’s 

character. This is a recently added quality derived from language in the Wilderness Act (U.S. Congress, 

1964, Section 2(c)). Five of the six wilderness areas are adopting this quality and developing indicators 

and measures (Table 3-8).

Table 3-8: Other Features of Value Quality list of unique features integral to wilderness character

Tracy Arm – Ford’s 

Terror & Chuck River 

Wilderness Areas

South Baranof Wilderness

Area

Kootznoowoo 

Wilderness Area

West Chichagof – Yakobi 

Wilderness Area

Cultural Resources Baranof Island Brown Bears Cultural Resources Chichagof Island Brown 

Bears 

Subsistence 

Opportunities

Red Bluff Bay Geologic 

Features

Subsistence 

Opportunities White Sulphur Springs

Historic/Prehistoric Values Historic/Prehistoric Values

Subsistence Opportunities Subsistence Opportunities

In conferring with agency specialists, this quality is regarded in good condition overall for the five 

wilderness areas, with the trend stable and data adequacy medium for all until the measures, indicators, 

thresholds and trends are further refined and developed. 

Five wilderness areas have an Other Features of Value Quality in good condition with a stable trend and 

low data adequacy: 

• Tracy Arm – Ford’s Terror and Chuck River Wilderness Areas,

• South Baranof Wilderness Area,

• Kootznoowoo Wilderness Area, and

• West Chichagof – Yakobi Wilderness Area.

Chapter 3 - 88 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

At present, the Pleasant, Lemesurier and Inian Islands Wilderness Area has not developed this quality. 

Existing Wilderness Character

Table 3-9 displays the sum results for the qualities and the overall wilderness character condition score for 

each wilderness area.

Table 3-9: Summary of quality and wilderness character condition scores for the Shoreline II project 

wilderness areas

Existing Conditions of Wilderness Qualities

Quality

Tracy Arm – 

Ford’s Terror & 

Chuck River 

Wilderness

Areas

South Baranof 

Wilderness

Area 

Kootznoowoo 

Wilderness Area

West Chichagof – 

Yakobi 

Wilderness Area

Pleasant,

Lemesurier & 

Inian Islands 

Wilderness Area

Untrammeled

Good condition

(3.00)

Stable trend

Medium 

adequacy

Good condition

(2.50)

Stable trend

Good adequacy

Moderate 

concern

(2.17)

Stable trend

Medium 

adequacy

Moderate concern 

(2.17)

Stable trend

Medium adequacy

Good condition

(3.00)

Stable trend

Medium adequacy

Undeveloped

Moderate

concern

(2.33)

Stable trend

Low adequacy

Good condition

2.83)

Stable trend

Medium 

adequacy

Significant 

concern

(1.44)

Stable trend

Medium 

adequacy

Moderate concern 

(2.00)

Stable trend

Medium adequacy

Good condition

(2.50)

Stable trend

Medium adequacy

Natural

Good condition

(2.75)

Stable trend

Medium 

adequacy

Good condition

(2.75)

Stable trend

Medium 

adequacy

Good condition

(2.50)

Undetermined 

trend

Low adequacy

Good condition 

(2.50)

Stable trend

Low adequacy

Good condition

(2.75)

Stable trend

Medium adequacy

Outstanding 

Opportunities 

for Solitude 

or a Primitive 

and 

Unconfined 

Type of 

Recreation

Good Condition

(2.54)

Undetermined 

trend

Medium 

adequacy

Moderate 

Concern

(2.33)

Undetermined 

trend

Medium 

adequacy

Moderate 

Concern

(2.08)

Undetermined 

trend

Medium 

adequacy

Good Condition 

(2.63)

Undetermined 

trend

Medium adequacy

Good Condition

(2.50)

Undetermined 

trend

Medium adequacy

Other 

Features of 

Values

Good condition

(3.00)

Stable trend

Medium 

adequacy 

Good condition

(3.00)

Stable trend

Medium 

adequacy

Good condition

(3.00)

Stable trend

Medium 

adequacy

Good condition 

(3.00)

Stable trend

Medium adequacy

N/A

Existing Condition of Wilderness Character

Wilderness

Character

Good condition

(2.73)

Stable trend

Medium 

adequacy

Good condition

(2.68)

Stable trend

Medium 

adequacy

Moderate 

Concern

(2.24)

Stable trend

Medium 

adequacy

Moderate 

Concern (2.46)

Stable trend

Medium adequacy

Good condition

(2.69)

Stable trend

Medium adequacy

Shoreline II Outfitter/Guide DEIS Chapter 3 - 89 - 
Chapter 3—Environmental Consequences

Four wilderness areas have wilderness character in good condition with a stable trend and medium data 

adequacy: 

• Tracy Arm–Ford’s Terror and Chuck River Wilderness Areas (low data adequacy),

• South Baranof Wilderness Area, and

• Pleasant, Lemsurier and Inian Islands Wilderness Area.

Two wilderness areas have wilderness character warranting moderate concern with stable trends and 

medium data adequacy: 

• Kootznoowoo Wilderness Area, and

• West Chichagof–Yakobi Wilderness Area.

This summary of the existing conditions for the six Shoreline II project wilderness areas makes sense 

when considering the four wilderness areas in good condition are comparatively remote, unsettled, 

undeveloped and less intensively managed, and that the two wilderness areas of moderate concern have 

extensive histories of human settlement and extraction, have substantial developments (non-recreational 

and recreational), and have the most hands-on management. 

Environmental Consequences

Summary of Effects 

The environmental consequences section describes the direct and indirect effects the Proposed Action and 

alternatives would have on wilderness character within the Shoreline II Outfitter/Guide EIS project area, 

and the cumulative effects the Proposed Action and alternatives would have combined with other 

anticipated, current, and past projects. 

The direct effects analysis concludes with a summary table compiling the unaffected qualities with the 

affected qualities to assess how wilderness character will be affected. The degree of change to the 

measures, indicators, qualities and wilderness character determines the level of effect of the alternative 

(Table 3-10).

Table 3-10: Summary level of effect of an alternative on qualities and wilderness character

Level of Effects Definitions

No Effect Negligible Effect 

(+/-) Minor Effect (+/-) Moderate Effect 

(+/-) Major Effect (+/-) 

The effect of the 

examined alternative is 

absent or has no impact 

of any kind. No 

conditions and/or trends 

of any measures are 

affected.

The effect of the 

examined 

alternative would 

affect a measure 

or measures, but 

not to the degree 

that the conditions 

and/or trends of 

any indicators 

change. 

The effect of the 

examined 

alternative would 

affect measures 

such that the 

condition and/or 

trend of an 

indicator 

changes, but no 

qualities change.

The effect of the 

examined 

alternative would 

affect measures 

such that the 

conditions and/or 

trends of multiple 

indicators 

change, but no 

qualities change.

The effect of the examined 

alternative affects 

measures and indicators 

such that the condition 

and/or trend of a 

wilderness quality.

It is worth noting that effects that change indicators, qualities or overall wilderness character – minor, 

moderate or major effects - may represent substantial impacts that change enough measures that the 

effects ripple upwards to create changes at higher levels, or it could be that indicators, qualities or overall 

Chapter 3 - 90 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

wilderness character are on a threshold and a modest impact on only one or a few measures is enough to 

push the indicators, qualities or overall wilderness character across to a new status. Either way, whether 

the impacts are substantial or modest, the important point is that a threshold has been crossed. To use an 

analogy: minor, moderate or major negative effects may reflect all of the straw impacts that break a 

camel’s back, or the final straw that breaks a camel’s back. The focus from the wilderness administration 

standpoint is on the fact that the camel’s back is broken and should be mended. 

Qualities, Indicators and Measures Unaffected by the Shoreline II 

Outfitter/Guide Project 

There are four qualities of wilderness character that will not be affected in any of the six Wilderness Areas 

by the Proposed Action and alternatives: untrammeled, undeveloped, natural and other features of value. 

The effects analysis of the Environmental Consequences section will focus more in-depth on the affected 

quality, outstanding opportunities for solitude or a primitive and unconfined type of recreation, and its 

indicators and measures. 

Untrammeled

The untrammeled quality signifies that wilderness is essentially unhindered and free from human control 

or manipulation. Examples of controls or manipulations include predator control, fire suppression, 

stocking lake with fish and other direct intentional management of plants, wildlife or ecological 

processes. There will be no effect to the untrammeled quality in all six wilderness areas because the 

Proposed Action and alternatives do not propose intentional manipulation of wilderness from any 

outfitter/guide use proposed under the Shoreline II Outfitter/Guide EIS project. 

Undeveloped

The undeveloped quality is an index of structures, installations, and inholdings, and of 

administrative/emergency/unauthorized use of motor vehicles, motorized equipment or mechanical 

transport normally prohibited by the Wilderness Act and not allowed under the Alaska National Interest 

Lands Conservation Act. There will be no effect to the undeveloped quality in all six wilderness areas 

because outfitter/guide use allocations described in the Proposed Action and alternatives do not authorize 

structures, installations, inholdings or exceptional cases of using normally prohibited motorized or 

mechanized means. 

Natural

The natural quality has an indicator and several measures that are outside the effects of the Proposed 

Action and alternatives. The physical resources: air quality indicator will not be affected in all six 

wilderness areas and is not expected to be significantly impacted by the Shoreline II Outfitter/Guide EIS

project. The cruise ships which are subject to visual emissions readings do not conduct outfitter/guide 

operations in wilderness and so they fall outside the scope of this project’s considerations. Additionally 

the measures evaluating the number of extirpated fish and wildlife species and the number of nonindigenous fish and wildlife species are not expected to change as a result of Shoreline II Outfitter/Guide 

EIS activities. 

Consequently, the natural quality analysis incorporates findings from this project’s botany report to assess 

effects on the measures registering disturbed rare and sensitive plants and the number and extent of nonnative plant species. The botany report indicates that with proper mitigation monitoring and adaptive 

measures in place, there should be no adverse effects from any of the four alternatives on rare and 

sensitive plants or in regards to proliferating non-native plant species. Thus the natural quality is regarded 

as being unaffected by this project contingent on proper mitigation, Adaptive Management and 

monitoring taking place. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 91 - 
Chapter 3—Environmental Consequences

Outstanding opportunities for solitude or a primitive and 

unconfined type of recreation 

Measures and Indicators Unaffected by the Shoreline II Outfitter/Guide

Project 

The outstanding opportunities for solitude or a primitive and unconfined type of recreation quality has 

two indicators which are unaffected by the Proposed Action and alternatives. The primitive recreation 

indicator: facilities that decrease self-reliant recreation and the unconfined recreation indicator: 

management restrictions on visitor behavior are not foreseen as being affected by the Shoreline II 

Outfitter/Guide EIS and are regarded as being outside the scope of the project. Consequently, the analysis 

of this quality will focus on the two solitude indicators (remoteness from human activity inside wilderness

and adjacent to wilderness). This is the main focus of the Environmental Consequences section.

Within the indicator: remoteness from sights and sounds of people inside the wilderness, there is a 

measure of number of cabin reservations per year. It is uncertain as to whether the varying amounts of 

outfitter-guide use offered by the Proposed Action and its alternatives would result in a change in the 

number of cabin reservations. Many of the cabins are remote and expensive to access and many of the 

commercial operators permitted to use wilderness areas already have vessels designed to accommodate 

clients. Additionally, the measure condition cannot be scored until a protocol is established regarding the 

relationship between cabin users and outstanding opportunities for solitude (determining thresholds for 

enjoyment of solitude opportunities and for impairment of solitude opportunities as relates to numbers of 

commercial and noncommercial cabin users). Absent more definitive data, effects are not projected 

regarding this measure. 

Within the Indicator: Remoteness from sights and sounds of people inside the wilderness, there is a 

measure of Number of guided visitors in service days. While it is clear that for each alternative this 

number changes, the measure condition cannot be properly scored until a protocol is established regarding 

the relationship between guided clients and outstanding opportunities for solitude (determining thresholds 

for enjoyment of solitude opportunities and for impairment of solitude opportunities as relates to numbers 

of commercial and noncommercial visitors). Hence how differing amounts of guided visitors change the 

condition remains uncertain. Effects to this measure are not assessed in the alternative analyses, though 

the different numbers of service days offered under each alternative are presented.

Summary of Shoreline II alternatives on the outstanding 

opportunities for solitude or a primitive and unconfined type of 

recreation quality 

By averaging the measures under the various alternatives, deriving indicator scores for both the 

remoteness from sights and sounds of human activity in wilderness and the remoteness from sights and 

sounds of human activity adjacent to wilderness, and then averaging those indicator scores against the 

existing indicator scores for management restrictions and facilities that decrease self-reliance, a composite 

Outstanding Opportunities for Solitude or a Primitive and Unconfined Type of Recreation Quality score 

may be determined (Table 3-11). 

Chapter 3 - 92 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Table 3-11: Summary of all four indicators as a composite quality score for outstanding opportunities for 

solitude or a primitive and unconfined type of recreation 

Tracy Arm – 

Ford’s Terror 

& Chuck 

River 

Wilderness

Areas

South Baranof 

Wilderness

Area

Kootznoowoo 

Wilderness Area

West Chichagof 

– Yakobi

Wilderness

Area

Pleasant, 

Lemesurier &

Inian Islands 

Wilderness

Area

Existing 

Condition

Good 

condition

(2.54)

Moderate 

concern

(2.33)

Moderate concern

(2.08)

Good condition 

(2.63) Good condition

(2.50)

Alternative 1 (No 

Action)

Good 

condition

(2.54)

(No effect) 

Moderate 

concern

(2.33) Negligible 

effects)

Moderate concern

(1.71)

(Moderate negative 

effects)

Good condition 

(2.58)

(Minor negative 

effects)

Moderate 

concern 

(Major negative 

effects)

(2.42)

Alternative 2 

(Proposed 

Action)

Good

condition

(2.54)

(No effect)

Moderate 

concern

(2.33)Negligible 

effects)

Moderate 

concern(2.08)

(No effect)

Good condition 

(2.58)

(Minor negative 

effects)

Moderate 

concern 

(Major negative 

effects)

(2.42)

Alternative 3

Good 

condition

(2.54) 

(No effect)

Moderate 

concern

(2.33)Negligible 

effects)

Moderate concern

(2.08) 

(No effect)

Good condition 

(2.58)

(Minor negative 

effects)

Moderate 

concern 

(Major negative 

effects)

(2.42)

Alternative 4

Good 

condition

(2.38)

(Major 

negative 

effects)

Moderate 

concern

(2..08)(Minor 

negative effects)

Moderate concern

(1.71)

(Moderate negative 

effects)

Moderate 

concern

(2.21)

(Minor negative 

effects)

Moderate 

concern

(Major negative 

effects)

(2.33)

Additionally, by categorizing the level of effect, the Forest Service can note if the condition rating reflects 

no effect (no changes), a negligible change (measure-shifting), a minor change (indicator-shifting), a 

moderate change (multiple indicator shifts) or a major change (quality shifting). It is important to 

recognize that a condition rating might be weaker (or stronger) but still reflect the same score (for 

instance a 1.75 and a 2.25 average would both equate with a score of 2 = moderate concern, but the lower 

number is closer to a lower significant concern rating). 

Other features of value 

The wilderness areas that have adopted the other features of value quality have chosen indicators 

pertaining to features that are addressed in other resource specialist reports. The heritage section in this 

chapter pertains to cultural resources and human historic and prehistoric values. The subsistence section

addresses subsistence opportunities. The wildlife section covers brown bears. Findings from specialists 

indicate that the other features of value indicators will not be substantially affected by the Shoreline II 

Outfitter/Guide EIS Proposed Action and alternatives as long as proper mitigation, Adaptive Management 

and monitoring measures are realized. See the project design and mitigation measures section below, the 

Adaptive Management section above and the relevant resource specialist reports for more details. 

Consequently, the other features of value quality is expected to remain unchanged from its existing 

condition for the Shoreline II Outfitter/Guide EIS project Proposed Action and alternatives. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 93 - 
Chapter 3—Environmental Consequences

Environmental Consequences Summary

Tables 3-12 to 3-16 illustrate how the direct effects of the Shoreline II Outfitter/Guide EIS Proposed 

Action and alternatives impact the wilderness qualities and character of the six project area wildernesses.

Table 3.12: Environmental consequences summary for the Tracy Arm - Ford's Terror and Chuck River 

Wilderness Areas

Shoreline II alternative effects on wilderness qualities

Quality Existing 

Condition

Alternative 1

(No Action)

Alternative 2 

(Proposed 

Action)

Alternative 3 Alternative 4

Untrammeled Good condition

(3.00)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Undeveloped

Moderate 

concern 

(2.33)

Moderate 

concern

(2.33)

(No effect)

Moderate 

concern

(2.33)

(No effect)

Moderate concern

(2.33)

(No effect)

Moderate concern

(2.33)

(No effect)

Natural Good condition

(2.75)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Outstanding 

opportunities 

for solitude or 

a primitive and 

unconfined 

type of 

recreation

Good condition

(2.54)

Good condition

(2.54)

(No effect)

Good condition

(2.54)

(No effect)

Good condition

(2.54)

(No effect)

Moderate concern

(2.38)

(Major negative 

effects)

Other features 

of values

Good condition

(3.00)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Shoreline II alternative effects on wilderness character

Wilderness

Character

Good condition

(2.73)

Good condition

(2.73) 

(No effect)

Good condition

(2.73) 

(No effect)

Good condition

(2.73) 

(No effect)

Good condition

(2.69) 

(Major negative 

effects)

For much of the Tracy Arm – Ford’s Terror and Chuck River Wilderness Areas, the severe geography 

concentrates use and impacts to specific sites. A consequence of this is that the projected effects from use 

under Alternatives 1 (No Action), 2 (Proposed Action) and 3 are expected to be similar to the effects 

already occurring in the Existing Condition; consequently, there is no change in the wilderness character 

condition scores of 2.73 – good condition - for Alternatives 1 (No Action), 2 (Proposed Action) and 3 and 

the Existing Condition. 

Alternative 4 increases use more to where it is likely additional impacts will occur. The outstanding 

opportunities for solitude or a primitive and unconfined type of recreation quality drops from a 2.54 score 

to a 2.38. This crosses the threshold from good condition to being of moderate concern and is regarded as 

a major impact. The effect on the overall wilderness character condition score is to drop it from 2.73 to 

2.69; it is still in good condition.

Chapter 3 - 94 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Table 3-13: Environmental consequences summary for the South Baranof Wilderness Area

Shoreline II Alternative Effects on Wilderness Qualities

Quality Existing 

Condition

Alternative 1

(No Action)

Alternative 2 

(Proposed 

Action)

Alternative 3 Alternative 4

Untrammeled Good condition 

(2.50)

Good condition

(2.50)

(No effect)

Good condition

(2.50)

(No effect)

Good condition

(2.50)

(No effect)

Good condition

(2.50)

(No effect)

Undeveloped

Good condition 

(2.83)

Good condition 

(2.83)

(No effect)

Good condition 

(2.83)

(No effect)

Good condition 

(2.83)

(No effect)

Good condition (2.83)

(No effect)

Natural

Good condition 

(2.75)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Outstanding 

opportunities 

for solitude or a 

primitive and 

unconfined 

type of 

recreation

Moderate 

concern 

(2.33)

Moderate 

concern

(2.33)

(No effect)

Moderate 

concern

(2.33)

 (No effect)

Moderate concern

(2.33)

 (No effect)

Moderate concern

(2.08)

(Minor negative 

effect)

Other features 

of values

Good condition 

(3.00)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Shoreline II Alternative Effects on Wilderness Character

Wilderness

character

Good condition 

(2.68)

Good condition

(2.68)

(No effect)

Good condition

(2.68)

(No effect)

Good condition

(2.68)

(No effect)

Good condition

(2.63)

(Minor negative 

effects)

For the South Baranof Wilderness Area, the projected effects of Alternatives 1 (No Action), 2 (Proposed 

Action) and 3 are expected to be similar to the effects already occurring in the Existing Condition. 

Alternative 4 does degrade the Indicator: Remoteness from human activity inside wilderness via effects to 

the rated measure conditions, and so it is listed as having a minor negative effect. The outstanding 

opportunities for solitude or a primitive and unconfined type of recreation quality remains one of 

moderate concern for all four alternatives – only Alternative 4 degrades its condition score. 

The overall wilderness character for the South Baranof Wilderness Area remains in good condition for all 

four alternatives. Alternatives 1 (No Action), 2 (Proposed Action) and 3 do not affect the wilderness 

character condition score of 2.68; Alternative 4 lowers it to 2.63. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 95 - 
Chapter 3—Environmental Consequences

Table 3-14: Environmental consequences summary for the Kootznoowoo Wilderness Area

Shoreline II alternative effects on wilderness qualities

Quality Existing 

Condition

Alternative 1

(No Action)

Alternative 2 

(Proposed 

Action)

Alternative 3 Alternative 4

Untrammeled

Moderate 

concern

(2.17)

(No 

effect)

Moderate 

concern

(2.17)

(No effect)

Moderate concern

(2.17)

(No effect)

Moderate 

concern

(2.17)

(No effect)

Moderate concern

(2.17)

(No effect)

Undeveloped

Significant 

concern

(1.44)

(No 

effect)

Significant 

concern

(1.44)

(No effect)

Significant 

concern

(1.44)

(No effect)

Significant 

concern

(1.44)

(No effect)

Significant concern

(1.44)

(No effect)

Natural

Good 

condition

(2.50)

(No 

effect)

Good condition

(2.50)

(No effect)

Good condition

(2.50)

(No effect0

Good condition

(2.50)

(No effect)

Good condition

(2.50)

(No effect)

Outstanding 

opportunities for 

solitude or a 

primitive and 

unconfined type 

of recreation

Moderate 

concern

(2.08)

(No 

effect)

Moderate 

concern

(1.71)

(Moderate 

negative effects)

Moderate concern

(2.08)

(No effect)

Moderate 

concern

(2.08)

(No effect)

Moderate concern

(1.71)

(Moderate negative 

effects)

Other features of 

values

Good 

condition

(3.00)

(No 

effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Shoreline II alternative effects on wilderness character

Wilderness

character

Moderate 

concern

(2.24)

(No effect)

Moderate 

concern

(2.16)

(Moderate 

negative effects)

Moderate concern

(2.24)

(No effect)

Moderate 

concern 

(2.24)

(No effect) 

Moderate concern

(2.16)

(Moderate negative 

effects) 

For the Kootznoowoo Wilderness Area, Alternatives 2 (Proposed Action) and 3 have no effects on the 

wilderness character qualities or on the overall wilderness character condition which retains its condition 

score of 2.24 (the same as the existing condition) and condition rating of being of moderate concern.

Alternatives 1 (No Action) and 4 degrade the outstanding opportunities for solitude or a primitive and 

unconfined type of recreation quality, lowering its score to a 1.71, which is still within the threshold of 

being of moderate concern. This results in a degradation of the overall wilderness character condition, 

lowering it to 2.16, which is also still within the threshold of being of moderate concern. 

Chapter 3 - 96 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Table 3-15: Environmental consequences summary for the West Chichagof-Yakobi Wilderness Area

Shoreline II alternative effects on wilderness qualities

Quality Existing 

Condition

Alternative 1

(No Action)

Alternative 2 

(Proposed 

Action)

Alternative 3 Alternative 4

Untrammeled

Moderate 

concern

(2.17)

Moderate 

concern

(2.17)

(No effect)

Moderate 

concern

(2.17)

(No effect)

Moderate 

concern (2.17)

(No effect)

Moderate concern

(2.17)

(No effect)

Undeveloped

Moderate 

concern

(2.00)

Moderate 

concern

(2.00)

(No effect)

Moderate 

concern

(2.00)

(No effect)

Moderate 

concern (2.00)

(No effect)

Moderate concern

(2.00)

(No effect)

Natural

Good 

condition 

(2.50)

Good condition

(2.50)

(No effect)

Good condition 

(2.50)

(No effect)

Good condition

(2.50)

(No effect)

Good condition

(2.50)

(No effect)

Outstanding 

opportunities for 

solitude or a 

primitive and 

unconfined type 

of recreation

Good 

condition

(2.63)

Good condition

(2.58)

(Minor negative 

effect)

Good condition

(2.58)

(Minor negative 

effect)

Good condition

(2.58)

(Minor negative 

effect)

Moderate Concern

(2.21)

(Major negative 

effect)

Other features of 

values

Good 

condition

(3.00)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Good condition

(3.00)

(No effect)

Shoreline II alternative effects on wilderness character

Wilderness

character

Good 

condition 

(2.68)

Good condition

(2.68)

(Negligible 

effects)

Good condition

(2.68)

(Negligible 

effects)

Good condition

(2.68)

(Negligible 

effects)

Good condition

(2.63)

(Minor negative 

effects)

For the West Chichagof–Yakobi Wilderness Area, Alternatives 1 (No Action), 2 (Proposed Action) and 3 

degrade measures under the outstanding opportunities for solitude or a primitive and unconfined type of 

recreation quality such that the indicator: remoteness from human activity inside wilderness downgrades 

from good condition to being of moderate concern; however the quality remains in good condition. 

Alternative 4 degrades the same indicator as well as the indicator: remoteness from human activity 

adjacent to wilderness. This in turn degrades the quality from good condition to being of moderate 

concern. 

The overall wilderness character condition rating for the West Chichagof – Yakobi Wilderness Area 

remains one of moderate concern for all four alternatives. Alternative 4 lowers the wilderness character 

condition score down to 2.38; Alternatives 1 (No Action), 2 (Proposed Action) and 3 all score 2.45. 

Table 3-16: Environmental consequences summary for the Pleasant, Lemesurier and Inian Islands 

Wilderness Areas

Shoreline II alternative effects on wilderness qualities

Quality Existing 

Condition

Alternative 1

(No Action)

Alternative 2 

(Proposed 

Action)

Alternative 3 Alternative 4

Untrammeled Good condition Good condition Good condition Good condition Good condition

Shoreline II Outfitter/Guide DEIS Chapter 3 - 97 - 
Chapter 3—Environmental Consequences

Shoreline II alternative effects on wilderness qualities

Quality Existing 

Condition

Alternative 1

(No Action)

Alternative 2 

(Proposed 

Action)

Alternative 3 Alternative 4

(3.00) (3.00)

(No effect)

(No effect) (No effect) (No effect)

Undeveloped Good condition 

(2.50)

Good condition 

(2.50)

(No effect) 

Good condition 

(2.50) (No 

effect)

Good condition 

(2.50) (No effect)

Good condition 

(2.50) (No effect)

Natural Good condition 

(2.75)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Good condition

(2.75)

(No effect)

Outstanding 

opportunities 

for solitude or 

a primitive and 

unconfined 

type of 

recreation

Good condition 

(2.50)

Moderate 

concern

(2.42)

(Major negative 

effect)

Moderate 

concern

(2.42)

(Major negative 

effect)

Moderate concern

(2.42)

(Major negative 

effect)

Moderate concern

(2.42)

(Major negative 

effect)

Shoreline II alternative effects on wilderness character

Wilderness

character

Good condition 

(2.69)

Good condition

(2.67)

(Major negative 

effect)

Good condition

(2.67)

(No effect)

Good condition

(2.67)

(No effect)

Good condition

(2.65)

(Major negative 

effect)

For the Pleasant, Lemesurier and Inian Islands Wilderness Area Alternatives 1 (No Action), 2 (Proposed 

Action), 3 and 4 degrade measures under the outstanding opportunities for solitude or a primitive and 

unconfined type of recreation quality such that the quality drops from good condition to being of 

moderate concern. This is partially due to the fact that the existing condition of the quality is impaired to 

where it is barely above the threshold for good condition. 

The overall wilderness character condition for the Pleasant, Lemesurier and Inian Islands Wilderness Area 

degrades slightly yet remains good for all alternatives, with Alternatives 1 (No Action), 2 (Proposed 

Action) and 3 scoring a 2.67 and Alternative 4 scoring 2.65. 

Direct Effects Conclusion 

Generally speaking, the wilderness character of the six wilderness areas is fairly resilient in regards to the 

Shoreline II Outfitter/Guide EIS Proposed Action and alternatives, largely in part to the health of the 

untrammeled, undeveloped, natural and other features of value qualities, but also due to the fact that the 

Shoreline II Outfitter/Guide EIS project tends to have a concentrated impact under two of the four 

indicators under the outstanding opportunities for solitude or a primitive and unconfined type of 

recreation quality. It is only when the proposed use is substantially more than the 5-year actual use

average, and when certain wilderness areas are on the cusp between conditions, that the Shoreline II 

Outfitter/Guide EIS Proposed Action and alternatives tends to have a greater effect.

Indirect Effects 

Indirect effects include how the Shoreline II Outfitter/Guide EIS project might affect people’s awareness 

and appreciation of wilderness. Members of the public support wilderness from afar for its inherent 

intrinsic and spiritual values, as well as for its explicit ecosystem services such as providing fresh air and 

Chapter 3 - 98 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

water, wildlife habitat and nurturing biodiversity. For some, authorizing outfitter/guide services in 

wilderness may compromise these other values and benefits. Others may gain greater wilderness 

awareness and appreciation through hearing of their colleagues exploits while on an outfitted/guided trip. 

It is not possible to quantify the effects of any action alternative on the concerns, values and awareness of 

wilderness visitors and wilderness advocates. It is likely that some would be anxious about crowding and 

outfitter/guides affecting wilderness, whereas others would be more receptive of such opportunities and 

use. 

Cumulative Effects 

The cumulative effects analysis considers reasonably foreseeable projects that may have an effect on the 

wilderness character of the Shoreline II Outfitter/Guide EIS wilderness areas in the next 10 years. The 

following projects have been determined as having cumulative effects on wilderness character.

Angoon Airport

The Alaska Department of Transportation & Public Facilities has proposed building an airport to serve the 

community of Angoon and the Federal Aviation Administration has completed a DEIS for the project. The 

State has applied under Title XI of the Alaska National Interest Lands Conservation Act of 1980 to build 

the airport and its access road in the Kootznoowoo Wilderness Area. Four of the Draft EIS alternatives 

place the airport and the access road in the wilderness across Favorite Bay from Angoon; 1 alternative 

places the airport and the access road on lands of mixed ownership within the community; this latter 

alternative would not be built in designated wilderness.

For the alternatives building the airport and road in wilderness, measures under all wilderness qualities 

would be negatively affected. The untrammeled, undeveloped and outstanding opportunities for solitude 

or a primitive and unconfined type of recreation qualities would likely have their trends turn to degrading 

and might also suffer degraded conditions. The other features of value cultural resources indicator would 

also be impaired; however the subsistence opportunities indicator might have an improving trend if the 

access road affords more subsistence opportunities without a loss of subsistence resources. The inwilderness alternatives could potentially impair the overall wilderness character condition and/or regress 

its trend to degrading.

Thayer Lake Hydropower Project

In 2009 the Forest issued a Record of Decision authorizing Kootznoowoo Inc., the Angoon village 

corporation, to construct a small hydropower plant in Thayer Creek north of town in the Kootznoowoo 

Wilderness Area in order to provide Angoon with more affordable energy. Kootznoowoo Inc. is now 

working with project designers to develop an economical plan for constructing the small hydro plant. The 

construction of such a plant for Angoon’s benefit is specifically provided for in the Alaska National 

Interest Lands Conservation Act (which also designated the Kootznoowoo Wilderness Area). 

This project includes construction of a diversion dam, penstock, powerhouse, underground transmission 

lines and access roads. The construction of the hydro power plant would contribute to the undeveloped 

quality remaining in a condition of significant concern and push its trend to degrading. The untrammeled 

quality and outstanding opportunities for solitude or a primitive and unconfined type of recreation quality 

would also have impaired measures and degrading trends. 

Cumulative Effects Summary

The cumulative effects of the aforementioned projects combined with the direct effects would degrade the 

wilderness character of the Kootznoowoo Wilderness. The natural quality is on the cusp between being in 

a good condition and being of moderate concern (score = 2.50 which just equals good condition). This 

quality would likely degrade to a condition of moderate concern. The other qualities would also degrade, 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 99 - 
Chapter 3—Environmental Consequences

but they are not as close to thresholds. The overall effect would be an incremental degradation across the 

qualities that would shift the condition within moderate concern closer to being of significant concern and 

farther from being in good condition. 

Project Design Features and Mitigation Measures

Adaptive Management

Adaptive Management would be triggered for all use areas that reach (or have already surpassed) 80

percent of a season’s outfitter/guide capacity. Adaptive Management requires monitoring to ensure that 

authorized outfitter/guide use is not compromising desired conditions. Adaptive Management also 

provides measures to be employed when unacceptable degradation occurs (see the Adaptive Management 

section for details). The recreation site and user-created trail mitigations subsection below provides 

guidelines for triggering Adaptive Management measures sooner when unacceptable conditions are found 

prior to reaching the 80 percent capacity threshold.

Recreation site and user-created trail mitigations

Establish acceptable condition ratings where outfitter/guide use occurs. Use existing Forest Service Level 

II inventory standards for recreation sites and Forest Service trail standards for user-created trails. For 

instance, establish for recreation sites whether their minimal acceptable condition rating is 1 (lightly 

impacted), 2 (moderately impacted) or 3 (heavily impacted) and monitor and administer the site such that 

it doesn’t degrade below the acceptable condition. 

If a recreation site or trail condition degrades below established standards, employ one or more of the 

following site-specific mitigation measures:

• Suspend additional authorization of outfitter/guide use at the site,

• Reduce existing authorized use, and/or

• Work with outfitters/guides to improve recreation site or trail conditions

It may be proper to assign sites for outfitter/guide users in such instances in order to allow for a phased 

approach that assesses how new outfitter/guide use affects others’ opportunities and the physical 

resources. Assigned sites could be continued or relaxed depending on the findings of subsequent 

monitoring. 

Additional Mitigations

Additional mitigations may be found under the appropriate resource section of this document and in 

Appendix A (Use Area Cards).

Consistency with Direction and Regulation

The Wilderness Act of 1964 provides for the use and enjoyment of wilderness areas and requires that their 

wilderness character be preserved (U.S. Congress, 1964) creating a spectrum under tension between use 

and preservation. The Shoreline II Outfitter/Guide EIS Proposed Action and alternatives comply with the 

law by proposing varying amounts of outfitter/guide use that fall in different places on the spectrum. It 

must be emphasized that monitoring will be essential for ensuring compliance with the law and for 

ensuring that authorized activities realize public purposes of wilderness and only create acceptable 

impacts. (U.S. Congress, 1964, Section 2(a)).

Chapter 3 - 100 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Recreation

Introduction

This section summarizes and examines the existing condition of recreation resources within the Shoreline 

II project area. This information is used to evaluate the potential effects to these recreation resources from 

outfitter/guide use. In this analysis, the term “outfitter/guide” includes, but is not limited to, “packing, 

hunts, education, float trips, canoe...liveries, shuttle services, ski touring,...boat tours, and fishing trips 

and may be conducted by, among others, educational, rehabilitation, and interpretive ventures and outdoor 

institutional organizations, including both for-profit and non-profit entities.” (Forest Service Handbook 

2709.14, 53.1, p. 3))

Effects are analyzed for the following significant issues raised during public scoping: 

Issue: Effects to wilderness areas and effects of outfitter/guide 

uses on unoufitted/unguided visitors 

• There are concerns that the wilderness areas are already too crowded with outfitter/guides. Any

additional increase in outfitter/guide allocation would negatively impact wilderness character. (This

part of the issue was addressed in the wilderness section.)

• Outside of wilderness, outfitter/guide use may cause crowding, noise, and disturbance, particularly in

locations popular with unoutfitted/unguided visitors. (This part of the issue is addressed in this

section.)

Issue: Incompatible outfitter/guide uses 

There are concerns about incompatible outfitter/guide uses (e.g., bear hunting and wildlife viewing/nature 

tour operators) that overlap in time and space. 

This section also addresses the extent to which the alternatives meet the project purpose and need, which 

is to manage outfitter/guide use in accordance with the Forest Plan, to determine new allocations for 

outfitter/guide use, to balance outfitter/guide and unoutfitted/unguided recreation opportunities, and to 

provide and maintain high quality recreation experiences without degrading other forest resources. The 

Forest Plan goal for recreation and tourism is to provide a range of recreation opportunities consistent 

with public demand, emphasizing locally popular recreation places and those important to the tourism 

industry. Recreation resources distill down to an individual’s recreation experience they obtain while 

visiting the Tongass National Forest. Those experiences can be impacted negatively or positively by 

outfitter/guide recreation service providers. Outfitter/guide play an important role in providing and 

enhancing high quality and safe recreation experiences for visitors who normally do not have the 

knowledge and skills needed to recreate in the more remote landscapes of Southeast Alaska. 

Outfitter/guides can also create negative impacts to unoutfitted/unguided users who are also using Forest 

recreation resources. The public concerns for recreation resources associated with outfitter/guide use that 

this analysis is addressing are crowding, impacts to popular or high-value local areas, and incompatible 

uses.

Information related to the recreation resources are described in the Affected Environment section of this 

section. The direct, indirect, and cumulative effects of the alternative are analyzed in the Environmental 

Consequences section. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 101 - 
Chapter 3—Environmental Consequences

Regulatory Framework 

The Forest Plan provides the management framework for the recreation resource. The Forest Plan divides 

land into a series of areas, each of which is described by a land use designation (LUD). Each LUD has a 

management prescription that includes goals, objectives, and a desired future condition. LUDs also 

include standards and guidelines for managing recreation and the other forest resources. See Chapter 1 of 

the EIS for a discussion of the LUDs. 

Recreation management in the Shoreline II Outfitter/Guide EIS project area must also be consistent with 

the laws, regulations, policies, and other relevant plans of the federal government. The legal policy and 

framework that governs recreation management is in Appendix A of the Recreation Resource Report in 

the project record. 

Recreation Opportunity Spectrum and Land Use Designations 

In addition to the information provided in Appendix A of the Recreation Resource Report, the following 

section provides more detail about the Recreation Opportunity Spectrum (ROS), which is referenced 

throughout this analysis.

The Forest Plan assigns a range of appropriate recreation settings for each LUD using the ROS. These 

classes cover the full range, or spectrum, of recreation opportunities. Each LUD may include more than 

one ROS class. The ROS classes, from least developed to most developed, are listed below. 

• Primitive

• Semi-Primitive Non-motorized

• Semi-Primitive Motorized

• Roaded Natural

• Roaded Modified

• Rural

• Urban

Each ROS class includes standards and guidelines for a set of indicators (see the Forest Plan for a 

complete description of all ROS standards and guidelines components). These classes and associated 

indicators are used in project analysis and recreation planning to describe the current condition across the 

landscape (“ROS inventory”) and to analyze effects of different alternatives. ROS classes are also 

identified in the management prescriptions of each LUD, providing direction for desired conditions. In 

this document, when the term “prescription” is used in relation to ROS, this refers to the ROS class(s) 

specifically identified in the LUD management prescription. In some cases, specific ROS classes are 

prescribed (e.g., Remote Recreation LUD is managed for Primitive ROS settings and experiences); in 

other cases, the LUD prescribes maintaining the existing ROS inventory condition until approved 

activities change the ROS setting(s) (e.g., Modified Landscape LUD). Table 3-17 provides a full list of 

the LUDs within the Shoreline II project area and the associated prescribed ROS class(s).

Table 3-17: Forest Plan ROS prescription by LUD

LUD ROS Prescription

Experimental Forest Existing ROS unless scheduled activities cause a change.

LUD II Semi-Primitive 

Minerals Existing ROS unless scheduled activities cause a change. Change to SemiPrimitive Motorized, Roaded Natural, or Roaded Modified is allowed.

Chapter 3 - 102 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

LUD ROS Prescription

Modified Landscape Existing ROS unless scheduled activities cause a change. Change to SemiPrimitive Motorized, Roaded Natural, or Roaded Modified is allowed.

Municipal Watershed No specific direction in the Forest Plan. Primitive or Semi-Primitive are usually 

appropriate.

Non-Wilderness National Monument Existing ROS unless scheduled activities cause a change.

Old-Growth Habitat Semi-Primitive 

Recreational River Existing ROS unless scheduled activities cause a change.

Remote Recreation Primitive

Research Natural Area No specific direction in the Forest Plan. Primitive is usually appropriate.

Scenic River Existing ROS unless scheduled activities cause a change.

Scenic Viewshed Existing ROS unless scheduled activities cause a change. Change to SemiPrimitive Motorized, Roaded Natural, or Roaded Modified is allowed.

Semi-Remote Recreation Semi-Primitive generally, Enclaves up to Rural

Special Interest Area Adopt through project planning. Before planning, manage as existing ROS.

Timber Production Existing ROS unless scheduled activities cause a change. Change to SemiPrimitive Motorized, Roaded Natural, or Roaded Modified is allowed.

Transportation/Utility Systems Manage changed setting within appropriate ROS guidelines.

Wild River Primitive and Semi-Primitive 

Wilderness Primitive and Semi-Primitive 

Wilderness National Monument Primitive and Semi-Primitive 

Analysis Methods 

Analysis Area

The Analysis Area for this section comprises National Forest System (NFS) lands within the Juneau, 

Hoonah, and Sitka Ranger Districts and Admiralty Island National Monument; it does not include State, 

Native, or private lands within or adjacent to the NFS. This area is divided into 48 use areas, as identified 

in the Shoreline II Outfitter/Guide project area map (Figure 1-1). These use areas are the individual 

analysis units for this report because they represent a more site specific and defined portion of the project 

area to help focus the analysis. 

Temporal Scale

The time period of effects from this project are estimated to be 10 years, which is the term of an 

outfitter/guide permit. This analysis variable is also defined by the spring, summer, fall, and winter 

seasons for a full calendar year because outfitter/guide use has been occurring, or has been requested, in 

all four seasons. Seasons are defined as follows and each use area section (below) provides the specific 

spring and summer season start/end dates:

• Early Spring: March 15 to April 24. Season start date was extended from the 2004 Shoreline

Outfitter/Guide FEIS and ROD to earlier in the year to accommodate growing demand for guided

activities and to shift some use away from the late spring season when incompatible uses and user

conflicts more commonly occur.

• Late Spring: April 25 to May 20/May 31. The late spring season was established to accommodate

existing levels of hunting use during the short spring bear hunting season, while also allowing for

some additional use by other activities. The season end dates were determined by the brown bear

hunting season closure.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 103 - 
Chapter 3—Environmental Consequences

• Summer: May 21/June 1 to September 14. Season start date for each use area was determined by

the brown bear hunting season closure. The end date aligns with the start of fall brown bear hunting

season.

• Fall: September 15 to December 31. Season start date aligns with the start of fall brown bear

hunting season. Season end date was extended from the 2004 Shoreline Outfitter/Guide FEIS and

ROD to accommodate demand for guide activities and align with the brown bear hunting season

closure.

• Winter: January 1 to March 14. Although not included in the 2004 Shoreline Outfitter/Guide FEIS

and ROD, a winter season was included in this analysis to provide opportunities for winter outfitting

and guiding. There is currently a limited demand for outfitter/guide activities in the winter season.

Resource Indicators and Units of Measure 

The Forest Plan specifies the use of ROS class standards and guidelines for project analysis and recreation 

planning (pp. 4-43 and 4-47). For this analysis, social encounters and remoteness ROS setting indicators 

are most relevant to the two issues being addressed. In addition, the number of service days allocated to 

outfitter/guide use is relevant because there is an expectation that as service days increase, the number of 

encounters and frequency of human sights/sounds would also increase. A service day is defined as a day 

or any part of a day on NFS lands for which an outfitter or guide provides services to a client (FSH 

2709.14, 53.1e). Popular or high-value local areas are also identified as an indicator in this analysis. For 

each of these indicators, units of measure are outlined (Table 3-18) and a scale of effect from “negligible” 

to “major” is defined (Table 3-19) to provide a means of analyzing the effects on the ROS setting. Also, 

the magnitude of change between the proposed allocations and the No Action Alternative is discussed. 

These indicators and measures are used to describe the affected environment and to evaluate the effects of 

the proposed alternatives on the recreation resources.

Table3-18: Resource indicators and units of measure for recreation resources

Indicator Unit of Measure Forest Plan Threshold or Guideline

Outfitter/Guide

Allocation

Number of service days allocated to 

outfitter/guide use

Generally 50% or less of the visitor capacity for each 

season is allocated to outfitter/guide use

(USDA Forest Service 2008a pp. 4-46)

Social Encounters Number of encounters per day. 

Threshold varies by ROS prescription.

Primitive (P) = 2 or less encounters/day; maximum 

group size 12 persons/group

Semi-Primitive (SP) = 9 or less encounters/day; 

maximum group size 20 persons/group

Roaded Natural (RN) and Roaded Modified (RM) = 

19 or less encounters/day; no maximum group size

Rural (R) = 20 or more encounters/day; no maximum 

group size

Urban (U) = No restrictions, site specific standards

(USDA Forest Service 2008a pp. I-1 to I-6)

Chapter 3 - 104 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Remoteness Frequency of sights/sounds of human 

activity from other recreation users.

P = No or infrequent sights/sounds of human activities 

SP = Nearby sights/sounds of human activities are rare

RN = Remoteness is of little importance, but low to 

moderate concentrations of human sights or sounds 

are preferred

RM = Remoteness from urban conditions and high 

concentrations of other people is important.

R = Remoteness is of little importance, and moderate 

to high concentrations of people and sights and sounds 

of human activity are acceptable when not continuous.

U = Remoteness is not important. High concentrations 

of people and sights and sound of human activity are 

acceptable.

(USDA Forest Service 2008a pp. I-1 to I-6)

Popular or highvalue local areas

Number of popular locations, time 

period of popular use, activity type(s), 

and/or amount of use (if known)

Minimal adverse impacts to popular or high-valued 

local areas

(USDA Forest Service 2008a pp. 4-46)

Outfitter/Guide Allocation 

Analyzing the proportion of outfitter/guide allocation in relation to the visitor capacity provides a 

meaningful measure of effects from the Proposed Action and alternatives on crowding and impacts to 

unoutfitted/unguided users. The Forest Plan guideline for this indicator is that generally a maximum of 50 

percent of the visitor capacity can be allocated to outfitter/guide use.

Social Encounters 

Social encounter is defined as: An encounter occurs when a person or group located on NFS lands 

becomes aware of the presence of another person or group located on or immediately adjacent to NFS 

lands. Social encounters were selected as an indicator to assess the public concern of crowding resulting 

from allocating a proportion of total visitor capacity to outfitter/guide use.

For this analysis, the number of encounters is estimated for each use area by calculating the number of 

outfitter/guide and unoutfitted/unguided groups per day for the primary use season for each alternative 

and comparing that to the number of known use locations where people recreate. The primary use season 

is determined by local factors of a given site or area and is generally not the same date range across the 

Analysis Area. Factors may include fish run seasons, game management seasons, cruise ship schedules, 

typical weather patterns, etc. The primary use season for each area is described in the Affected 

Environment section. Use locations are the areas identified in the Shoreline II Visitor Capacity Analysis 

(USDA Forest Service, 2014e; also in Appendix E) as “capacity locations.” Comparing the number of 

estimated groups per day with the number of known use locations will provide an indication whether 

crowding, or encountering more than the prescribed number of groups identified in the Forest Plan, will 

occur under each alternative. 

The number of outfitter/guide groups per day is estimated by dividing the number of service days 

allocated for each alternative by the number of days in the primary use season (=service days/day). This 

value is then divided by the maximum number of persons per group allowed within the predominant ROS 

class of each use area (=groups/day). Unoutfitted/unguided groups per day is estimated by subtracting the 

number of service days allocated for each alternative from the total visitor capacity (=number of service 

days available for unoutfitted/unguided use). This value is then divided by the number of days in the 

primary use season (=service days/day) and then divided by the ROS group maximum as described 

previously. The outfitter/guide and unoutfitted/unguided groups/day values are totaled to provide an 

estimate of the maximum number of groups per day expected under each alternative in the primary use 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 105 - 
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season. This number is then compared to the number of available use locations in each use area. If the 

groups/day number exceeds the number of use locations, then encounters among groups may occur. 

When performing the calculations to estimate the number of encounters within a use area, it is assumed 

that visitor use is spread evenly over time and space. The reality of recreation use patterns are rarely this

uniform. The analysis uses the calculations as an indicator and is supported by a more site specific 

qualitative description of effects based on other supporting information such as professional knowledge, 

comments and documented issues of crowding between guide companies, public comments and 

monitoring data. 

Thresholds for group sizes and encounters are based on Forest Plan ROS standards and guidelines. To 

evaluate effects of each alternative on the social setting, this estimate is compared to the Forest Plan 

maximum number of encounters per day (defined by ROS class). 

Remoteness 

Remoteness is used as an indicator in this analysis because it describes the relationship between 

recreation users and other uses that may be incompatible for an expected recreation experience. 

Remoteness is defined using the Forest Plan ROS standards and guidelines. Factors that define 

remoteness, such as sight and sound, do not have to originate from the national forest uplands, but they do 

have to impact users on the national forest uplands. The Forest Plan ROS standards and guidelines serve 

as the threshold for the remoteness indicator (Table 3-18). 

In this section, remoteness is used to describe the effects of the Proposed Action and alternatives of 

outfitter/guide use on other recreation users during the primary use season. The effect of outfitter/guide 

use on remoteness is a qualitative description based on professional knowledge, monitoring data, and 

public comments. 

Popular or High-Value Local Areas

Popular or high-value areas are important to outfitter/guide and unoutfitted/unguided users on the 

National Forest. These are areas that local people, independent travelers, or outfitter/guide service 

providers tend to go to repeatedly. They typically contain some sort of feature, such as a fish stream, bear 

viewing, geological formation, recreation facility (trail, shelter, etc.), beach, or other attraction that creates 

a unique experience. A use area may contain several use locations, but one or more of them could be 

described as a popular or high-value area.

Analyzing impacts of outfitter/guide use on popular or high-value areas provides a more site specific 

description of use patterns in a use area. Recreation issues associated with this indicator include 

incompatible uses, crowding, and displacement of visitors to other use locations. 

In summary, this section is framed to quantitatively and qualitatively illustrate, with the best available 

information, the relationship between the visitor capacity, the outfitter/guide allocation described in the 

Proposed Action and alternatives, the daily activities of all recreation users, the site specific geography of

use areas, and other relevant measures that describe effects to recreation resources. Conclusions, such as 

whether an effect or impact is negligible, minor, moderate, or major (Table 3-19) are based upon the 

analyst’s judgment of the magnitude of the change, the context and extent of the impact, and the timing 

and nature of activities taking place.

Sources of Information 

Several sources of information are used for this section, which include: Tongass Outfitter and Guide 

Database, INFRA database, GIS, public recreation cabin use from the National Recreation Reservation 

Service, trail use from district logs, encounter monitoring, campsite/dispersed site monitoring, 

Chapter 3 - 106 - Shoreline II Outfitter/Guide DEIS
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information gathered at public forums, in-person field contacts, outfitter/guide annual meetings, permit 

inspections, and public comments during scoping. This information is used to describe existing conditions 

and as a basis for the effects analysis. 

Table 3-19: Units of measure and levels of effect

Level of Effect

Unit of 

Measure Negligible Minor Moderate Major

In general...

Effect would be 

hardly noticeable, 

limited in extent 

(localized), 

infrequent (few 

occurrences at 

any time of year).

Effect would be 

noticeable, but 

limited in extent 

(localized), occurs 

less than 15% of the 

primary use season1

. 

Effect would be readily 

apparent, affect 

multiple locations, 

occurs more than 15% 

but less than 80% of

the primary use 

season1

. 

Effect would be highly noticeable, 

extensive (entire Use Area), 

occurs on most days of primary 

use season1 (more than 80%).

Number of 

service days

allocated to 

outfitter/guide

use

Less than 5% of 

the total visitor 

capacity is 

allocated to 

outfitter/guide

use. 

5-25% of the total

visitor capacity is

allocated to

outfitter/guide use.

26-50% of the total

visitor capacity is

allocated to

outfitter/guide use.

More than 50% of the total visitor 

capacity is allocated to 

outfitter/guide use. 

Number of 

Encounters

Expect no 

increase or 

decrease in 

encounters with or 

amongst 

outfitter/guide

groups at any 

time of year. 

Expect more 

encounters with or 

amongst 

outfitter/guide groups 

at a few locations 

less than 15% of the 

primary use season.

Expect more 

encounters with or 

amongst outfitter/guide

groups at multiple 

locations more than 

15% but less than 80% 

of the primary use 

season. 

Expect more encounters with or 

amongst outfitter/guide groups 

throughout the Use Area and on 

most days of primary season 

(more than 80%). Encounter 

levels are expected to exceed the 

Forest Plan threshold.

Frequency of 

sights/sounds 

of human 

activity from 

other users

Expect no 

increase or 

decrease in the 

amount of human 

sights or sounds 

experienced at 

any time of year. 

May experience more 

sights or sounds of 

humans at a few 

locations less than 

15% of the primary 

use season.

Expect more sights or 

sounds of humans at 

multiple locations and 

more than 15% but less 

than 80% of the

primary use season. 

Expect more sights or sounds of 

humans throughout the Use Area

and on most days of the primary 

use season (more than 80%).

Remoteness conditions are 

expected to exceed the Forest 

Plan threshold.

Popular/high 

value local 

areas affected

No impacts to 

high value areas 

are expected.

Little to no adverse 

impacts are expected 

and may include: 

encounters with 

outfitter/guide groups 

are limited to a few 

popular locations less 

than 15% of the 

primary use season

Some adverse impacts 

are expected and may 

include: encounters 

with outfitter/guide

groups occur frequently 

at multiple popular 

locations within the Use 

Area, more than 15% 

but less than 80% of 

the primary use season

Adverse impacts to popular/high 

value local areas are expected 

and may include: encounters with 

outfitter/guide groups occur at 

most or all of the popular 

locations within the Use Area on 

most days of the primary use 

season (more than 80%), 

displacement of 

unoutfitted/unguided users. 

Assumptions 

Continued Demand for Outfitter/Guide Permits 

Statewide and regional long-term visitor industry trends indicate sustained periods of growth spanning 

over two decades (excluding 2009 and 2010 recession-related slumps). While the national recession and 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 107 - 
Chapter 3—Environmental Consequences

prolonged period of economic recovery negatively impacted Alaska’s visitor industry during 2009 and 

2010, the industry rebounded and is again on sustained path of growth. The 2016 tourism season is 

expected to yield an all-time high cruise passenger volume due to larger ships carrying more passengers. 

History indicates Southeast Alaska’s visitor industry follows national and international trends. As the U.S. 

economy continues to recover and expand, Southeast Alaska’s visitor industry is also expected to grow. It 

is reasonable to assume that demand for special use permits to conduct outfitter/guide operations within 

the Shoreline II Outfitter/Guide FEIS and ROD project area will continue to increase. 

Unguided Visitor Use is Stable

There is limited quantifiable information available about unoutfitted/unguided use levels and related 

trends. However, examining economic and population trends for those communities within and affected 

by the Shoreline II Outfitter/Guide EIS can provide an approximation of unoutfitted/unguided visitor 

trends. Unoutfitted/unguided recreation use is not expected to increase at rates higher than the general 

population growth. The following is excerpted from the Socioeconomics section: 

Economists expect Southeast’s economy will remain flat in the coming years, likely growing less than 

one percent per year. Previous regional economic drivers including government, mining, and timber 

will continue to decline while visitor industry jobs will continue to grow. 

Based on the expectation of flat growth trends, this section assumes that unoutfitted/unguided visitor use 

will remain relatively stable over the next 5 to 10 years. 

Future Use Patterns are Similar to Existing Use Patterns

Recreation use impacts vary widely based on factors such as activity type, method of transportation, 

distribution of use over space and time, and time spent on NFS lands. Within the project area, patterns of 

use are generally associated with protected boat anchorages, accessible shoreline areas, and the recreation 

opportunities available (e.g. campsites, beaches, fishing streams, trails, scenic attractions, and wildlife 

habitat for hunting). It is reasonable to assume that future use patterns (5 to 10 years), including the type 

of activities occurring, the method of transportation used, and the spatial and temporal distribution of use, 

will be similar to existing patterns of use.

Affected Environment

The Shoreline II Outfitter/Guide EIS Analysis Area lies within a land of spectacular scenery and abundant 

wildlife. The 17-million-acre Tongass National Forest encompasses about 80 percent of the land in 

Southeast Alaska, including most of the coastal rainforest. 

Fourteen communities are found within or near the general project area: Juneau, Sitka, Baranof Warm 

Springs, Port Alexander, Tenakee Springs, Pelican, Elfin Cove, Gustavus, Angoon, Hoonah, Haines, 

Skagway, Petersburg, and Kake. The highest levels of recreation use are centered near these communities. 

The communities of Petersburg and Kake are just south of the project area, but do have some reliance on 

the project area for business, personal, and subsistence needs. Descriptions of each of these communities 

can be found in the Socioeconomics section. 

The rest of this section includes the following:

• Summary of the Recreation Opportunity Spectrum classes (current condition) within the project area

• Recreation use levels

• Recreation facilities

• Large Group Areas

• Access considerations

Chapter 3 - 108 - Shoreline II Outfitter/Guide DEIS
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• Summary of recent monitoring results of the recreation resources within the project area

Recreation Opportunity Spectrum (ROS)

As described in the Analysis Methods section (above), the Forest Plan uses the ROS for project analysis 

and planning. It also uses the ROS to help describe the types of recreation settings that are provided by 

the Tongass National Forest. Overall, 53 percent of the Shoreline II Outfitter/Guide EIS project area is 

inventoried as providing Primitive ROS class opportunities, much of this in designated wilderness areas. 

Approximately 35 percent is inventoried as Semi-Primitive Non-Motorized and Semi-Primitive 

Motorized ROS classes. The remaining 12 percent is inventoried as Roaded Natural, Roaded Modified, 

Rural, and Urban ROS classes.

Recreation Use and Levels 

The large amount of land area in the Tongass National Forest provides a great diversity of recreation 

attractions and opportunities. Types of recreation occurring within the Analysis Area include tourism 

(including cruise ships and historical and cultural tourism), outfitted/guided fishing and hunting, wildlife 

viewing, hiking, and many others. Most of these recreation activities take place in, and depend on, 

settings that are primarily undeveloped and widely dispersed. Most of the area is wild and remote, with 

limited road access only locally available around the communities. Recreation facilities, primarily cabins 

and shelters, are limited. The Analysis Area is a place where people generally expect a remote and 

wildland experience. 

Most recreation in the Analysis Area occurs as day trips originating from a nearby community. When 

people use the Tongass National Forest for overnight trips, they generally use boats as base facilities and 

for sleeping, regardless of the type of activity. If boats are not used, remote tent camping is typical.

Figure 3-2. Percent of Outfitter/guide use by activity (2010-2014)

Unoutfitted/Unguided Recreation 

Precise information on unoutfitted/unguided recreation and tourism use in the project area is generally not 

available. Except for locations where fees are collected or where people can be easily counted, most of 

the use data are based on long-term observations, anecdotal information, and professional estimates 

adjusted with quantitative indicators where available. Anecdotal reports and recreation site monitoring 

provide some indication of the amount, type, and extent of unoutfitted/unguided use in the Analysis Area. 

This information is provided for each use area in Appendix A. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 109 - 
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Outfitter/Guide Recreation 

Information about outfitter/guide provided recreation use is more available due to an annual reporting 

requirement for all permitted outfitter/guides. The following is a summary of outfitter/guide use from the 

Tongass outfitter/guide database for the most current five year period (2010-2014; USDA Forest Service, 

2015a). 

There were 122 outfitter/guide businesses or institutional operators that provided services to national 

forest visitors within the Shoreline II Outfitter/Guide EIS Analysis Area during 2010 to 2014. Sixty-two 

of these operators used the Analysis Area consistently (at least 4 out of 5 years). Approximately 16,000 

service days have been used on average annually. 

The primary activity conducted by outfitter/guides was remote setting nature tours (10,114 service days

annually; 63 percent). These activities have occurred every month of the year, but typically occur from 

May through September. There are 325 locations used for remote setting nature tours; sites most used 

include Lake Eva Trail, Fox Creek, Williams Cove, and George Island with over 700 service days 

annually at each of these sites. Wildlife viewing at Pack Creek Zoological Area is a type of remote setting 

nature tour activity that has 401 service days (3 percent) of use occurring annually (in addition to the 

10,114 service days already mentioned). Much of this use occurs during the summer season, which is 

covered by a separate NEPA analysis, but the use information is provided in this section as context. 

Freshwater fishing is the second-most occurring activity (2,520 service days annually; 16 percent) and 

takes place from mid-April through mid-October, with most use occurring from May through September. 

There are 169 locations used for freshwater fishing; sites most used include Nakwasina Sound River, 

Greens Creek, Slocum Inlet, Lake Eva Creek, and Saook Bay Creek with over 100 service days annually 

at each of these sites. Camping is the next-most occurring activity (1,174 service days annually; 7

percent) and has occurred during all months of the year, but most commonly occurs from June through 

August. There are 140 sites reported used for camping with the most use occurring at The Basin in Kelp 

Bay and Point Adolphus with over 100 service days annually at each of these sites. Brown bear hunting 

(884 service days annually; 6 percent) has occurred from mid-April to May and mid-September to midOctober, with most use occurring in May and September. There are 240 locations reported used for 

hunting and are widely dispersed throughout the Analysis Area, with most areas reporting less than 10 

service days annually. The most used areas include Gambier Bay, north arm of Hoonah Sound, Chaik 

Bay, Kelp Bay, and Goose Flat in Tenakee Inlet; all with less than 40 service days annually.

The remaining activities that occur within the Analysis Area account for 2 percent or less of the total and 

are not displayed in Figure 2. Kayaking (282 service days), hatchery tours (257), mountain goat hunting 

(127), black bear hunting (101), and deer hunting (87) are all activities consistently conducted every year 

by outfitter/guides, but on a more limited basis. Additional activities that occur on a more sporadic (not 

every year) and limited basis include: waterfowl and small game hunting (11), hot springs soaking (5), 

outfitting (2), and rafting (2).

Recreation Facilities 

A current inventory of Forest Service facilities that are accessible from saltwater is presented in Table 3-

20. Recreation facilities can help visitors experience their national forest lands. All facilities are available

for unoutfitted/unguided use; some facilities are available for outfitted/guided use and include: trails,

docks, day use/picnic sites, bathhouse, wildlife viewing site, some shelters, and some public recreation

cabins. Anchor buoys are not available for outfitter/guide use unless the associated public use cabin is

available for guides and is reserved for their clients.

Chapter 3 - 110 - Shoreline II Outfitter/Guide DEIS
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Table 1-20: Recreation facilities in the analysis area

Type of Facility Number

Anchor Buoys

Bathhouses 1 

Day Use/Picnic Sites 4 

Docks 5 

Public Recreation Cabins 38

Shelters 17

Trails 21

Trails (number of miles)

Wildlife Viewing Sites 1 

Bathhouses

White Sulphur Springs bathhouse is located in the 04-15D Use Area. This facility is available for 

outfitter/guide use under Shoreline I and will continue to be available under the Shoreline II O/G EIS, 

with stipulations (see Design Features section). Only 5 service days on average have been used annually 

by guides at this site. Neka Hot Springs (04-11A) also has developed facilities, but this site is not 

accessible from saltwater and is not included in this analysis.

Day Use/Picnic Sites

Day use facilities exist at Sturgill’s Landing (01-01), False Bay (04-11B), Whitestone Harbor (04-11B), 

and Kennel Creek (04-11B). All of these facilities are proposed to be available for outfitter/guide use 

under the Shoreline II O/G EIS. Less than 5 service days of use annually have been reported by 

outfitter/guides at the 04-11B sites; no outfitter/guide use has occurred at Sturgill’s Landing. 

Docks

Dock facilities are associated with road systems at Eight Fathom (04-11A), Salt Lake Bay (04-11A), 

Kennel Creek (04-11B), Corner Bay (04-12), and False Island (04-13). All of these docks are available for 

outfitter/guide use under Shoreline I and will continue to be available under the Shoreline II O/G EIS for 

non-motorized activities, with stipulations (see Design Features section). Actual use reports indicate 18 

service days have been used on average annually at Eight Fathom, 11 at Salt Lake Bay, 3 at Kennel 

Creek, 7 at Corner Bay, and 22 service days at False Island.

Public Recreation Cabins

In 2007, the Forest Service established guidelines for authorizing outfitter/guide use of public recreation 

cabins. These guidelines were used to develop a policy for authorizing outfitter/guide use of cabins on 

each district. With the downward trend in funding for maintaining recreation facilities across the Tongass 

National Forest, low use facilities are being decommissioned. By allowing outfitter/guide use of cabins, 

the additional revenue and use may result in certain cabins staying in the system. Some districts specified 

a number of nights and date limitations for each cabin while others left it open for case-by-case requests, 

and some cabins were determined to be unavailable for outfitter/guide use due to high levels of use by 

unoutfitted/unguided users. Table 3-21 lists the cabins that are accessible from saltwater in the Shoreline 

II O/G EIS project area, as well as the availability for outfitter/guide (O/G) use under the Shoreline II O/G 

EIS and actual use levels by outfitter/guides (2010 to 2014). See the Design Features section for specific 

cabin stipulations.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 111 - 
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Table 3-21: Public recreation cabins in the Shoreline II project area

Use Area Cabin Available for O/G Use in 

Shoreline II?

Average Annual 

O/G Use 

(service days)

01-04A Berners Bay No 0 

01-04C West Turner Lake No 0 

01-04C Taku Glacier Yes 0 

01-04C East Turner Lake Yes 0 

04-02A Kanga Bay Yes 1 

04-02A Sevenfathom Yes 0 

04-03 Allan Point Institutional O/Gs only 6 

04-03 Brent's Beach Institutional O/Gs only 58

04-03 Fred's Creek Institutional O/Gs only 12

04-03 Piper Island Institutional O/Gs only 0 

04-03 Salmon Lake Yes 0 

04-03 Samsing Cove Institutional O/Gs only 18

04-04A Appleton Cove Yes 0 

04-06A Pybus Bay Cabin Yes 0 

04-07A Church Bight Yes 0 

04-07A Jims Lake Yes 0 

04-07B Big Shaheen Yes 0 

04-07B Hasselborg Creek Yes 0 

04-07B Lake Alexander Yes 0 

04-07B Little Shaheen Yes 0 

04-07B Sportsmen Yes 0 

04-08 Admiralty Cove No 0 

04-08 North Young Lake Yes 0 

04-08 South Young Lake Yes 0 

04-11A Eight Fathom Bight No 0 

04-11B Kennel Creek No 0 

04-13 Moser Island Institutional O/Gs only 0 

04-14 Lake Suloia Yes 0 

04-15B Greentop Yes 0 

04-15D White Sulphur Springs Institutional O/Gs only 0 

Shelters

Shelters are typically three-sided structures without a heat source; they may have an outhouse associated 

with the site. The intent of these facilities is primarily for emergency shelter purposes, but they can also 

be used for recreation uses. All of these facilities are proposed to be available for outfitter/guide use under 

the Shoreline II O/G EIS; many were not available in the past or were only available on a case-by-case 

basis. 

Chapter 3 - 112 - Shoreline II Outfitter/Guide DEIS
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Table 3-22: Shelter facilities in Shoreline II project area

Use Area Shelter Available for O/G Use in 

Shoreline II?

Average Annual 

O/G Use 

(service days)

04-03 Kakul Yes 1 

04-03 Neva Yes 0 

04-07B Davidson Lake Yes 0 

04-07B Distin Lake Yes 0 

04-07B Hasselborg Lake Yes 0 

04-07B Lake Alexander Yes 0 

04-07B Lake Guerin Yes 0 

04-07B Mole Harbor Yes 0 

04-09B Windfall Harbor Yes 0 

04-10B Thayer Lake (2) Yes 0 

04-12 Long Bay Yes 0 

04-13 Ostoia Island Yes 0 

04-15A Bohemia Basin Yes 0 

04-16A Pinta Cove Yes 47

Trails 

Developed hiking opportunities are limited across the Shoreline II O/G EIS project area due to the costs 

of constructing and maintaining trails in remote areas in this temperate rainforest climate. The existing 

trail facilities are in a range of maintenance conditions, with some trails currently closed to outfitter/guide

use due to poor trail conditions. If funding becomes available for trail improvements, these trails may be 

opened in the future for outfitter/guide use.

Table 3-23: Trails in the Shoreline II project area

Use Area Trail

Approximate 

Length

(miles)

Available for O/G Use in 

Shoreline II?

Average Annual 

O/G Use 

(service days) 

01-04C Pt. Bishop Trail 7.7 Yes 0 

04-01B Mist Cove Trail 0.6 Yes 97

04-01B Sashin Lake Trail 1.7 Yes, after reconstruction 0 

04-02A Kizhuchia Creek Road Trail 1.6 Yes 0 

04-04B Lake Eva Trail 2.9 Yes 1,707

04-04C Sadie Lake Trail 0.5 Yes, after reconstruction 28

04-07B Cross-Admiralty Canoe Route 19.4 (many 

segments) Yes 0 

04-08 Admiralty Cove to Young Lake 4.8 Yes 0 

04-09B Pack Creek 1 Yes 477

04-11B Lower Suntaheen 0.3 Yes <1

04-11B Wukuklook 0.6 Yes 126

04-13 Sitkoh Creek Trail 4.4 Yes, after reconstruction 41

04-14 Suloia Lake Trail 0.7 Yes, after reconstruction 2 

04-15A Bohemia Basin 4 Yes 13

Shoreline II Outfitter/Guide DEIS Chapter 3 - 113 - 
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Use Area Trail

Approximate 

Length

(miles)

Available for O/G Use in 

Shoreline II?

Average Annual 

O/G Use 

(service days) 

04-15A Lisianski River 6 Yes 2 

04-15B Greentop Cabin Trail 1 Yes 0 

04-15C Stag Bay Trail 1 Yes 0 

04-15C Stag River Trail 2.4 Yes 0 

04-15D Didrickson Trail 0.1 Yes 0 

04-15D Dry Pass Trail 3.7 Yes 3 

04-15D Goulding Trail 1.4 Yes 15

04-15D White Sulphur Springs 1 Yes 0 

04-16D Lemesurier Island Lake Trail 0.5 Yes 0 

04-16E George Island Trail 0.5 Yes 1,043

Wildlife Viewing Sites

Pack Creek Bear Viewing Area is located in the 04-09B Use Area. It is actively managed from June 1 to

September 10 by the Forest Service and Alaska Department of Fish and Game under a separate NEPA

decision. Outside of this date range, the area is available for outfitter/guide use under the Shoreline II O/G 

EIS project. The average annual use by outfitter/guides at this site is 477 service days, which includes use 

during the June 1 to September 10 timeframe.

Large Group Areas 

There are 40 LGAs identified within the Shoreline II Outfitter/Guide EIS project area, seven of which are 

new proposed LGAs. The other 33 LGAs were designated in the 2004 Shoreline Outfitter/Guide FEIS and 

ROD project and are carried forward in this EIS. The intent of designating specific LGAs is to provide a 

known set of durable sites that can accommodate larger groups where physical resource impacts are not 

expected to occur. When larger operators are applying for an outfitter/guide permit, permit administrators 

can direct applicants to this list for consideration in their application. 

It is important to note that larger groups (up to 75 people) may also be allowed outside of designated 

LGAs, depending on the LUD and management prescription for the ROS class. In some cases, the LUD 

clearly specifies the type of ROS class to be managed for (e.g., Remote Recreation LUD prescribes 

Primitive ROS), and in other cases the LUD defaults to the existing on-the-ground ROS condition (e.g., 

Modified Landscape). Areas that are managed for Roaded Natural, Roaded Modified, Rural, or Urban 

ROS do not have a group size limit and could accommodate larger groups. There are areas within the 

Shoreline II Outfitter/Guide EIS project area that are managed for these ROS classes that are not within a 

designated LGA. Outfitter/guides may be allowed to take larger groups to these areas.

See Appendix B for specific information about each LGA. 

Access

The Tongass National Forest is a forested archipelago. The marine waters flowing between islands serve 

as the ‘road’ to this National Forest. Recreation access to the Analysis Area is primarily by motorized 

boats and floatplanes. A unique and challenging aspect of recreation management in the Analysis Area is 

that almost the entire shoreline, including designated wilderness areas, is immediately adjacent to 

saltwater, which allows motorized boat traffic and floatplane access.

Chapter 3 - 114 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

People can access the National Forest to recreate in a number of ways including: canoe or kayak, personal 

motor or sailboat, charter boat, floatplane, wheeled plane, state ferry, tour boat, or cruise ship. Most of the 

non-motorized access is in the form of kayaks, although many kayaks are often first transported to remote 

locations by motorized boats or by floatplanes. 

Because of the nature of the marine water access, recreation users tend to be highly mobile. Opportunities 

to encounter other parties are much greater for these highly mobile users than they would be if each party 

stayed in one location for the duration of its outing. Conversely, this mobility also allows people to avoid 

each other. Groups tend to disperse themselves geographically, with many groups moving around to seek 

areas without other people. If a bay or anchorage appears crowded, a group may avoid entering that bay to 

access the uplands.

Monitoring Results 

In general, the condition of recreation resources in the Shoreline II O/G EIS Analysis Area meets Forest 

Plan standards and guidelines in terms of encounters, crowding, use levels, and resource impacts. A 

monitoring report reviewing outfitter/guide actual use data for the Shoreline II O/G EIS project area 

(USDA Forest Service, 2014d) evaluated the average number of outfitter/guide groups using NFS lands 

per day (of only those days used by outfitter/guide groups) and the percent of days used in each season by 

outfitter/guides. Two analysis scales were used for data evaluation: use areas and capacity locations. 

Within each use area, capacity location polygons were generated as part of the Shoreline II Visitor 

Capacity Analysis, which were used to consolidate site points and eliminate redundant sites. This 

grouping also associated sites that were approximately within sight or sound of each other. Essentially, 

these are a grouped set of actual use locations. 

Results indicate that at the use area scale and at the more localized (capacity location) scale for each 

season; all of the use areas were below (within) the ROS standards and guidelines for groups per day. It is 

important to note that this review makes a conservative assumption that the outfitter/guide groups 

reported on a given day were all on the national forest at the same time. In reality, it is likely that groups 

disperse themselves throughout the day to avoid encountering other groups. However, since the data does 

not include time of day, the assumption that groups overlapped in time was used. It is also important to 

note that unoutfitted/unguided use is factored into the ROS standards and guidelines. However, this 

particular report focused only on outfitter/guide use because reliable data for unoutfitted/unguided use is 

not available for the project area.

The percent of days used was evaluated to provide an overall perspective on the amount of the season that 

sites are used by outfitter/guide groups. The highest percentage of days used occurred in the 04-03 Sitka 

Area for the spring (36 percent), summer (69 percent) and fall (37 percent) seasons. For the summer 

season, 69 percent translates into approximately 73 days of the season that there is an outfitter/guide 

group operating somewhere within the Use Area. This is one of the larger acreage use areas and contains 

the most capacity locations (50) than any other area in the project area. As a result, there is a higher 

likelihood of an outfitter/guide group using this area. When reviewing the percent of days used in each 

season at the capacity location scale, the highest use (24 percent) occurred at Kelp Bay and Pond Island in 

the spring season. In the summer season, the highest use (42 percent) occurred at Point Adolphus. In the 

fall season, the highest use (16 percent) occurred at Endicott Arm. 

In addition to the data review, there are some site-specific impacts noted from recreation site monitoring 

that are primarily associated with campsites and user created trails. The following section provides a 

summary of monitoring results for each district/monument in the project area. More details about 

monitoring results can be found in the individual use area sections of the Recreation Resource Report in 

the project record. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 115 - 
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Juneau Ranger District

On the Juneau Ranger District, the perception of crowding is most pronounced in areas such as Tracy and 

Endicott Arms during the summer season, where vessels regularly cruise saltwater, without going ashore. 

Although this activity is not within the Shoreline II O/G EIS project area, it contributes to an increased 

sense of crowding for those present (whether the beholder is onshore or aboard a vessel). 

Reports of crowding occur occasionally from outfitter/guide operators vying for certain locations within 

the same timeframe. Most of these timing conflicts are successfully resolved by the outfitter/guide 

operators, without further intervention by the Forest Service. 

The project area on the Juneau Ranger District receives very low to low levels of overall, with a few 

exceptions. Higher levels of use, relative to available outfitter/guide allocation, occur at Williams Cove 

LGA, Fords Terror and Endicott Arm during the summer season. 

Physical resource impacts (e.g., user created trails showing signs of erosion/vegetation damage) from 

recreation use are limited to individual sites and have been noted at Williams Cove LGA and Fords Terror 

narrows. Campsite and dispersed recreation inventories/surveys have shown that most sites are low 

impact or recovering to a natural condition, except at Williams Cove LGA and Fords Terror narrows. 

Admiralty Island National Monument

On Admiralty Island National Monument, instances of crowding occur occasionally in areas where 

different types of outfitter/guide use overlap (spring bear hunting and remote setting nature tours, for 

example). Pybus Bay is an example of where this type of timing conflict occurs. 

Reports of crowding occur annually from big game outfitter/guides vying for locations within the same 

timeframe, typically spring bear hunting season. Some of these timing conflicts are successfully resolved 

by the outfitter/guide operators, while others require further intervention by the Forest Service. Hood, 

Chaik, Whitewater, and Gambier Bays are examples of where this type of timing conflict occurs.

The project area on Admiralty Island National Monument receives very low to moderate levels of use 

overall, with a few exceptions. For example, higher levels of use, relative to available outfitter/guide

allocation, occur at the Brothers Islands during the summer season. 

Physical resource impacts (e.g., user created trails showing signs of erosion/vegetation damage) from 

recreation use are limited to individual sites and have been noted at the Brothers Islands. Dispersed 

recreation inventories/surveys have shown that most sites are low impact or recovering to a natural 

condition, except at the Brothers Islands.

Sitka Ranger District

Levels of use on the Sitka Ranger District range from very low (04-01C) to high (04-03, 04-04B, 04-13) 

during the summer season. Crowding has been reported at certain locations during popular fish runs (e.g., 

Redoubt Lake, Sandy Bay, Port Banks, Politofski Lake Creek, Salmon Lake Creek), at popular trails (e.g., 

Lake Eva), and at areas with other scenic and wildlife viewing attractions (e.g., Red Bluff Bay).

Most outfitter/guide use locations that have been monitored show little to no physical resource impacts 

from recreation use. Outfitter/guides generally pack out their trash and also pack out trash left by other 

visitors. 

However, some site specific impacts have been noted associated with user created trails and campsites. 

User trails have been documented at a number of locations, some showing regular maintenance including 

illegal chainsaw cutting (e.g., Politofski Lake and Sandy Bay). Some resource impacts associated with 

popular campsites (e.g., structures, trash, fire ring scars, and/or vegetation damage/loss) have been 

observed in 04-01A, 04-02A, 04-02B, 04-02C, 04-03, 04-04B, 04-13, 04-14, and 04-15D. It is unknown 

if outfitter/guide use contributed to these impacts, but continued monitoring, site naturalization, and 

Chapter 3 - 116 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

education of visitors to use Leave No Trace practices is needed. Overall, dispersed campsite inventories 

indicate that most sites are low impact or are recovering to a natural condition. 

Monitoring also indicates that adjacent saltwater activities are having an impact on the ability for 

wilderness visitors to experience solitude and may be disrupting the natural behaviors of brown bear that 

frequent the area (e.g., Red Bluff Bay). 

Hoonah Ranger District

Levels of use on the Hoonah Ranger District range from very low (04-15A, 04-15B) to high (04-16A) 

during the primary use seasons. Crowding has been reported in some areas associated with day use and 

camping activities (Pinta Cove and Point Adolphus) and a popular trail at George Island. 

Most outfitter/guide use locations that have been monitored show little to no physical resource impacts 

from recreation use. Those noted are associated with ground hardening and some tree branch removal at 

campsites (04-16A, 04-16D) and user trail impacts occurring at Marble Creek and Fox Creek. Overall, 

sites used by outfitter/guides are kept clean and in good condition. 

There has been some physical resource impacts noted (e.g., furniture structures, trash, fire ring scars, and 

vegetation loss) at several popular day use areas and campsites in 04-11B, 04-16B, and 04-16E that are 

attributed to unoutfitted/unguided visitors. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 117 - 
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Figure 3-3. Alternative 1 effects summary map, outfitter/guide allocation indicator

Chapter 3 - 118 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Environmental Consequences

The Environmental Consequences section provides an analysis of the direct and indirect effects the No 

Action (Alternative 1), Proposed Action (Alternative 2), and other action alternatives (3 and 4) would 

have on the recreation resources, and the cumulative effects these actions would have when considered in 

combination with other past, present, and anticipated projects. Direct environmental effects occur at the 

same time and place as the initial cause or action. Indirect effects occur later in time or are spatially 

removed from the action. Cumulative effects result from the incremental effects of actions, when added to 

other past, present, and reasonably foreseeable future actions. Cumulative effects can result from 

individually minor, but collectively significant, actions taking place over a period of time. Effects are 

analyzed using the recreation resource indicators and measures that were described in the Analysis 

Methods section of this Recreation section. 

The following is included in this section: 

• Summary of the direct/indirect effects of each of the alternatives

• Direct/indirect effects of actions common to Alternatives 2, 3, and 4

• Cumulative effects analysis

Direct/Indirect Effects Summary 

Alternative 1

Outfitter/guide Allocation

On average, the total outfitter/guide allocation for Alternative 1 across all seasons ranges from 1 percent

(04-02A Redoubt Lake and 04-02C Necker Islands) to 55 percent (01-04D Slocum Inlet) of visitor 

capacity, with an average of 11 percent. One Use Area, 01-04D Slocum Inlet, is above the Forest Plan 

guideline of 50 percent and is expected to have a major effect overall on the recreation setting. The 

remaining allocations are well below the Forest Plan guideline of 50 percent. Three use areas (01-05A 

Taku Harbor, 01-02 Haines Area, and 04-10A Greens Creek) are expected to have a moderate effect, 36 

use area are expected to have a minor effect, and eight use areas are expected to have a negligible effect 

overall on the recreation setting (Figure 3-3). 

Social Encounters and Remoteness

Management prescriptions vary across the Analysis Area depending on the LUD and ROS prescription, 

but the majority of the Analysis Area is managed for Primitive (26 use areas) or Semi-Primitive (22 use 

areas) ROS settings. For Primitive recreation opportunities, the Forest Plan standard and guideline is 12 

persons per group maximum and two or fewer encounters per day. Nearby sights and sounds of humans 

are expected to be none or infrequent. For Semi-Primitive recreation opportunities, the Forest Plan 

standard and guideline is 20 persons per group maximum and nine or fewer encounters per day. Nearby 

sights and sounds of humans is expected to be rare, but distant sights or sounds may occur. 

Given the number of estimated groups per day and the number of use locations available, all use areas are 

expected to be below the Forest Plan threshold for number of encounters and remoteness standards for 

Alternative 1. Based on use trends, 24 use areas expect more encounters on NFS lands and sights/sounds 

of humans are expected to occur at a few locations less than 15 percent of the primary use season, 

resulting in a minor level of effect for Alternative 1. A moderate level of effect for Alternative 1 is 

expected within 16 use areas where more encounters and frequency of sights/sounds of humans are 

expected to occur more than 15 percent but less than 80 percent of the primary use season. These 16 areas 

are: 01-04A Berners Bay, 01-04D Slocum Inlet, 01-05A Taku Harbor, 01-05E Fords Terror, 04-02B 

Whale Bay, 04-03 Sitka Area, 04-04C Baranof Warm Springs, 04-05A SW Admiralty, 04-09A Seymour 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 119 - 
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Canal, 04-10A Greens Creek, 04-11A Port Frederick, 04-12 Tenakee Inlet, 04-16A Point Adolphus, 04-

16B North Chichagof, 04-16C Idaho Inlet, and 04-16D PLI Wilderness. The remaining 8 use areas are 

expected to have negligible effects with no increases or decreases of encounters or sights/sounds of 

humans (Figure 3-4). 

Figure 3-4. Alternative 1 effects summary map, social encounters and remoteness indicators

Chapter 3 - 120 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Figure 3-5. Alternative 1 effects summary map, popular or high-value local areas indicator

Shoreline II Outfitter/Guide DEIS Chapter 3 - 121 - 
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Popular or High-valued Local Areas

Popular or high-value areas are important to outfitter/guide and unoutfitted/unguided users on the Tongass 

National Forest. These are areas that local people, independent travelers, or outfitter/guide service 

providers tend to go to repeatedly. A use area may contain several use locations, but one or more of them 

could be described as a popular or high-value area. Recreation issues associated with this indicator 

include incompatible uses, crowding, and displacement of visitors to other use locations. 

Under Alternative 1, major effects are expected in 1 use area (01-04D Slocum Inlet), which may include 

encounters and displacement of unoutfitted/unguided users. Some adverse impacts are expected 

(moderate effects) at 8 use areas: 01-04A Berners Bay, 01-05A Taku Harbor, 01-05E Fords Terror, 04-05A 

SW Admiralty, 04-10A Greens Creek, 04-12 Tenakee Inlet, 04-13 Peril Strait, and 04-16A Point 

Adolphus. These impacts may include encounters with outfitter/guide groups frequently at multiple 

popular locations within the use area, more than 15 percent but less than 80 percent of the primary use 

season. The remaining use areas expect negligible (14 use areas) to minor effects (25 use areas), which 

may include encounters with outfitter/guide groups at a few popular locations less than 15 percent of the 

primary use season (Figure 3-5). 

Chapter 3 - 122 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Figure3-6. Alternative 2 effects summary map, outfitter/guide allocation indicator

Shoreline II Outfitter/Guide DEIS Chapter 3 - 123 - 
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Alternative 2

Outfitter/Guide Allocation

On average, the total outfitter/guide allocation for Alternative 2 across all seasons ranges from 4 percent

(04-15B West Yakobi Island, 04-15C Stag Bay, and 04-08 NE Admiralty) to 32 percent (04-16E Port 

Althorp) of visitor capacity, with an average of 12 percent. All use areas are below the Forest Plan

guideline of 50 percent. Three use areas (01-04D Slocum Inlet, 04-16A Point Adolphus, and 04-16E Port 

Althorp) are expected to have a moderate effect, 42 use areas are expected to have a minor effect, and 

three use areas are expected to have a negligible effect overall on the recreation setting (Figure 3-6). 

Social Encounters and Remoteness

Given the number of estimated groups per day and the number of use locations available, all use areas are 

expected to be below the Forest Plan threshold for number of encounters and remoteness standards for 

Alternative 2. Based on use trends, 23 use areas expect more encounters on NFS lands and sights/sounds 

of humans are expected to occur at a few locations less than 15 percent of the primary use season, 

resulting in a minor level of effect for Alternative 2. A moderate level of effect for Alternatives 2 is 

expected within 19 use areas where more encounters and frequency of sights/sounds of humans are 

expected to occur more than 15 percent but less than 80 percent of the primary use season. The remaining 

six use areas are expected to have negligible effects with no increases or decreases of encounters or 

sights/sounds of humans (Figure 3-7). 

Popular or High-valued Local Areas

Under Alternative 2, some adverse impacts are expected (moderate effects) at 9 use areas: 01-04D Slocum 

Inlet, 04-01B Port Armstrong, 04-04B Kelp Bay, 04-05A SW Admiralty, 04-12 Tenakee Inlet, 04-13 Peril 

Strait, 04-16A Point Adolphus, 04-16C Idaho Inlet, and 04-16E Port Althorp. These impacts may include 

encounters with outfitter/guide groups frequently at multiple popular locations within the use area, more 

than 15 percent but less than 80 percent of the primary use season. Negligible (15 use areas) to minor 

effects (24 use areas) are expected for the remaining use areas, which may include encounters with 

outfitter/guide groups at a few popular locations less than 15 percent of the primary use season (Figure 3-

8). 

Chapter 3 - 124 - Shoreline II Outfitter/Guide DEIS
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Figure3-7. Alternative 2 effects summary map, social encounters and remoteness indicators

Shoreline II Outfitter/Guide DEIS Chapter 3 - 125 - 
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Figure 3-8. Alternative 2 effects summary map, popular or high-value local areas indicator

Chapter 3 - 126 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Alternative 3

Outfitter/guide Allocation

On average, the total outfitter/guide allocation for Alternative 3 across all seasons ranges from 3 percent

(04-15B West Yakobi Island, 04-15C Stag Bay, and 04-08 NE Admiralty) to 30 percent (01-04D Slocum 

Inlet) of visitor capacity, with an average of 10 percent. All use areas are below the Forest Plan guideline 

of 50 percent. One use area (01-04D Slocum Inlet) is expected to have a moderate effect, 41 use areas are 

expected to have a minor effect, and 6 use areas are expected to have a negligible effect overall on the 

recreation setting (Figure 3-9). 

Social Encounters and Remoteness

Given the number of estimated groups per day and the number of use locations available, all use areas are 

expected to be below the Forest Plan threshold for number of encounters and remoteness standards for 

Alternative 3. Based on use trends, 24 use areas expect more encounters on NFS lands and sights/sounds 

of humans are expected to occur at a few locations less than 15 percent of the primary use season, 

resulting in a minor level of effect for Alternative 3. A moderate level of effect for Alternatives 3 is 

expected within 17 use areas where more encounters and frequency of sights/sounds of humans are 

expected to occur more than 15 percent but less than 80 percent of the primary use season. The remaining 

7 use areas are expected to have negligible effects with no increases or decreases of encounters or 

sights/sounds of humans (Figure 3-10). 

Popular or High-valued Local Areas

Under Alternative 3, some adverse impacts are expected (moderate effects) at 6 use areas: 01-04A Berners 

Bay, 04-04B Kelp Bay, 04-12 Tenakee Inlet, 04-13 Peril Strait, 04-16A Point Adolphus, and 04-16E Port 

Althorp. These impacts may include encounters with outfitter/guide groups frequently at multiple popular 

locations within the use area, more than 15 percent, but less than 80 percent of the primary use season. 

The remaining use areas expect negligible (14 use areas) to minor effects (27 use areas), which may 

include encounters with outfitter/guide groups at a few popular locations less than 15 percent of the 

primary use season (Figure 3-11). 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 127 - 
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Figure 3-9. Alternative 3 effects summary map, outfitter/guide allocation indicator

Chapter 3 - 128 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Figure 3-10. Alternative 3, effects summary map, social encounters and remoteness indicators 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 129 - 
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Figure 3-11. Alternative 3 effects summary map, popular or high-value local areas indicator

Chapter 3 - 130 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Alternative 4

Outfitter/Guide Allocation

On average, the total outfitter/guide allocation for Alternative 4 across all seasons ranges from 6 percent 

(04-15B West Yakobi Island and 04-15C Stag Bay) to 53% (04-16E Port Althorp) of visitor capacity, with 

an average of 20 percent. One use area, 04-16E Port Althorp, is above the Forest Plan guideline of 50 

percent and is expected to have a major effect overall on the recreation setting. The remaining allocations 

are well below the Forest Plan guideline of 50 percent. Ten use areas (01-04D Slocum Inlet, 01-05A Taku 

Harbor, 04-03 Sitka Area, 04-04A Rodman Bay, 04-04B Kelp Bay, 04-10A Greens Creek, 04-13 Peril 

Strait, 04-16A Point Adolphus, 04-16B North Chichagof, and 04-16C Idaho Inlet) are expected to have a 

moderate effect, and 37 use areas are expected to have a minor effect overall on the recreation setting

(Figure 3-12). 

Social Encounters and Remoteness

Alternative 4 are expected to exceed the Forest Plan standards and guidelines for remoteness and 

encounters, resulting in a major level of effect. A moderate level of effect for Alternatives 4 is expected 

within 23 use areas where more encounters and frequency of sights/sounds of humans are expected to 

occur more than 15 percent but less than 80 percent of the primary use season. For 19 use areas it is 

expected that more encounters on NFS lands and sights/sounds of humans are expected to occur at a few 

locations less than 15 percent of the primary use season, resulting in a minor level of effect for Alternative 

4. The remaining 5 use areas are expected to have negligible effects with no increases or decreases of

encounters or sights/sounds of humans (Figure 3-13).

Popular or High-valued Local Areas

Under Alternative 4, adverse impacts are expected (major effect) at 3 use areas: 01-04D Slocum Inlet, 04-

16A Point Adolphus, and 04-16E Port Althorp. These impacts may include encounters with outfitter/guide

groups at most or all of the popular locations within the use area on most days of the primary use season

(more than 80 percent), or displacement of unoutfitted/unguided users. At 15 use areas, some adverse 

impacts are expected (moderate effects), which may include encounters with outfitter/guide groups 

frequently at multiple popular locations within the use area, more than 15 percent but less than 80 percent

of the primary use season. The remaining use areas are expected to have negligible (15 use areas) to 

minor effects (15 use areas), which may include encounters with outfitter/guide groups at a few popular 

locations less than 15 percent of the primary use season (Figure 3-14). 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 131 - 
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Figure 3-12. Alternative 4 effects summary map, outfitter/guide allocation indicator

Chapter 3 - 132 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Figure 3-13. Alternative 4 effects summary map, social encounters and remoteness indicators

Shoreline II Outfitter/Guide DEIS Chapter 3 - 133 - 
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Figure 3-14. Alternative 4, effects summary map, popular or high-value local areas indicator

Chapter 3 - 134 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Direct/Indirect Effects Analysis for Actions Common to 

Alternatives 2, 3, and 4 

Big Game Management

Brown Bear Hunt Allocation

Outfitter/Guide Allocation

This EIS proposes a Big Game Management strategy (see DEIS, Chapter 2) for brown bear hunts that 

would allocate hunts by ADF&G guide use area (GUA) to the spring and fall seasons based on the 

recommended number of hunts per GUA in the Brown Bear Management Strategy (“BBMS”; State of 

Alaska, 2000). Overall, brown bear guiding activities account for 6 percent of the total outfitter/guide use 

within the project area. Each brown bear hunt generally spans ten days and with 141 hunts available under 

the BBMS, this translates into approximately 1,410 service days across 35 Shoreline II use areas. The 

service days used for each hunt would be part of the total outfitter/guide allocation proposed for each use 

area and season. Therefore, effects under the outfitter/guide allocation indicator are expected to be the 

same as previously described in the Direct/Indirect Effects Summary section (above) for Alternatives 2, 3, 

and 4. 

In addition, since the number of hunts would be capped for each GUA under this new strategy, this would 

limit some of the flexibility guides currently have to conduct hunts across GUA boundaries. As a result, 

there should be greater predictability amongst forest users for when and where hunts may occur. Guides 

would continue to have some flexibility within GUAs to conduct hunts across multiple Shoreline II use 

areas (since these areas are smaller subunits of the ADF&G GUAs). 

Social Encounters and Remoteness

This section focuses on those use areas with a primary use season identified as the spring or fall, when 

guided brown bear hunting activities are conducted. This includes 4 use areas: 01-04B N. Juneau Coast 

(fall), 04-04A Rodman Bay (fall), 04-10B NW Admiralty (spring), and 04-15C Stag Bay (spring). Use 

Area 01-04B is outside of the area covered by the BBMS and is not directly affected by this action. 

For 04-04A, Alternative 4 proposes the largest increase in outfitter/guide allocation with 160 service days

in the fall season. With an average group size of 3.2 during the fall season (USDA Forest Service, 2014c); 

this translates into approximately 0.3 outfitter/guide groups per day in the use area. With four use 

locations available, this is within the ROS standards and guidelines for social encounters. Taking a 

conservative approach and assuming all four hunts allocated to the 04-04 GUA were conducted in the 04-

04A Use Area, the effects are expected to include more encounters and sights/sounds of humans at a few 

locations less than 15 percent of the primary use season – this is categorized as a minor effect.

In actuality, any encounter during a brown bear hunt may result in an unacceptable effect on the hunt. The 

four allocated hunts translate into approximately 40 service days (a brown bear hunt typically spans ten 

days). If all of the remaining 120 service days were used for other non-hunting outfitter/guide activities, 

the amount is within a reasonable level that overlapping incompatible uses should be able to be addressed 

through guide communication and coordination. This EIS does not prescribe allocations by activity in 

specific locations. The burden of communication and coordination is on the outfitter/guide representatives 

operating within the project area. 

For 04-10B and 04-15C, all of the action alternatives propose a decrease compared to Alternative 1 (No 

Action) during the primary use season (late spring) and are expected to be within the ROS standards and 

guidelines. No increase in the amount of encounters or frequency of human sights or sounds is expected--

this is categorized as a negligible effect.

Popular or High-valued Local Areas

Shoreline II Outfitter/Guide DEIS Chapter 3 - 135 - 
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This section focuses on the primary use season for this indicator, and as such, the same use areas 

discussed previously were analyzed for effects to popular or high-valued local areas. For 04-04A, 

Appleton Cove and Rodman Bay are high-value areas for local residents during fall hunting season. 

Brown bear guide groups have the potential to displace local users in these areas; however with the low 

amount of outfitter/guide allocation proposed in the fall season across all alternatives, the level of effect is 

expected to be minor. Some encounters with brown bear guide groups may occur less than 15 percent of 

the fall season. For 04-10B, much of the shoreline provides poor anchorages except in the major bays. 

Juneau residents primarily use the northern portion of this use area; the community of Angoon uses this 

area extensively. Under each of the action alternatives it is expected that no impacts to high value areas 

would occur – a negligible effect. For 04-15C, Saltery River and Stag Bay estuary are high-valued local 

areas. Given the few number of use locations within this use area, the effects for all alternatives are 

expected to result in some encounters with brown bear guide groups at one or both of these popular 

locations less than 15 percent of the primary use season – this is categorized as a minor effect.

Other Big Game Management Actions

Number of Registered Guides

This EIS proposes to restrict the number of permitted brown bear guides to the number specified in the 

BBMS, or any future collaborative planning outcome. To maintain a high quality hunt experience and 

avoid impacts to other users from overcrowding, the BBMS specifies a maximum number of 20 

individual registered brown bear guides should be permitted to operate in ADF&G Game Management 

Unit 4. Currently, there are 20 permitted brown bear guides operating in Unit 4. Therefore, no new brown 

bear guides will be permitted within the ADF&G Unit 4 portion of the Shoreline II O/G EIS project area 

unless an existing guide relinquishes their permit (e.g., change of ownership), or a prospectus is offered. 

As a result, a high level of communication, coordination, and cooperation amongst the current operators, 

and with other outfitter/guides and unoutfitted/unguided groups, is expected to continue. Most of the 

brown bear guides operating now have been operating for decades; they know the areas and the patterns 

of use. Professionalism and continued communications are critical to maintaining the desired range of 

recreation experiences being sought by all public lands visitors.

This EIS also proposes to specify the number of registered big game guides (brown bear guides and/or 

other big game guides) that can operate under a permit issued to a corporation or LLC permit. The intent 

of this action is to avoid unchecked expansion of the number of registered guides operating within the 

project area and to remain within the BBMS recommended total of 20 individual registered guides. 

Permits that are issued to individuals are clearly permitting only one registered guide for big game 

hunting activities. Since corporations or LLCs are not individual persons, the action proposes to clearly 

specify the number of registered guides authorized to operate under the permit; the individual names of 

guides would continue to be identified in the operating plan and reviewed for approval by the authorizing 

official. 

Number of Permitted Hunts for Other Big Game Species

Similar to the brown bear hunt allocation strategy described above, this project proposes to specify by 

GUA and season the number of outfitter/guide big game hunts permitted for each species. Unlike the 

BBMS, there are no management documents that provide a maximum number of hunts for other species. 

As requests for outfitter/guide big game hunting activities are received, the Forest Service works closely 

with ADF&G to evaluate proposals to ensure population sustainability, and this practice will continue 

under this project. The intent of this action is not to put a cap on the number of outfitter/guide big game 

hunts, but instead to provide for more predictability in where and when the already permitted hunts occur. 

Currently, big game guide permits typically allow for species to be hunted in multiple GUAs and seasons. 

By specifying the GUA and season in which hunts can occur, this should provide greater awareness of 

when and where big game guide hunting activities are most likely to occur and allow other users to 

coordinate and avoid user conflicts. 

Chapter 3 - 136 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Maximum Number of GUAs

Currently, the State allows big game guides to register for up to three GUAs for conducting guided hunts. 

The Forest Service issued big game guide permits that have a pool of GUAs from which the permit holder 

may select annually for operating plan approval. This process has resulted in a greater number of user 

conflicts due to the higher level of unpredictability from year to year for other guides operating in the 

selected GUAs. The intent of this action is similar to the previous action, and should provide for greater 

awareness of where big game hunting activities are most likely to occur. This should allow for better 

coordination and minimize user conflicts. 

Competitive Interest and Prospectus

Federal regulation and Forest Service policy require the use of a prospectus when a competitive interest

exists. There is competitive interest for outfitter/guide hunting for all big game species (except Sitka black 

tail deer) in the project area. The intent of this action is to align this project with current direction, which 

should result in the best services for the public. 

Adaptive Management 

Under the Adaptive Management strategy (see Chapter 2), the outfitter/guide allocation could be up to 

10% more than the selected alternative. When this 10 percent increase is applied to each alternative, the 

level of effect for outfitter/guide allocation is largely the same as that described above under each 

alternative, with a few exceptions. Under Alternative 1, 2 use areas (04-04B Kelp Bay and 04-16E Port 

Althorp) would move from a negligible to minor effect. Under Alternative 3, 1 use area (04-10B NW 

Admiralty) would move from a negligible to minor effect and 1 use area (04-16E Port Althorp) would go 

from a minor to moderate effect. Under Alternative 4, 2 use areas (04-02C Necker Islands and 04-02D 

SW Baranof) would move from a minor to moderate level of effect and 2 use areas (01-04D Slocum Inlet 

and 04-16A Point Adolphus) would go from a moderate to major level of effect. Alternative 2 effects 

would remain the same. 

The additional 10 percent allocation results in an average of 0 percent to 2 percent increase in allocation 

for the project area for all alternatives. Since distribution of use is likely to fluctuate depending on local 

conditions, there may be localized increases in encounters, effects to the remoteness setting, and at 

popular or high-valued areas during the primary use season. However, the overall level of effect on the 

recreation setting for social encounters and remoteness and on popular or high value areas is expected to 

be similar to that described above for each alternative. If monitoring under the Adaptive Management 

strategy shows standards are being exceeded, the resultant management action(s) is expected to improve 

the recreation setting by decreasing encounters and providing opportunities for remoteness within 

acceptable ROS conditions. 

Large Group Area Management 

Under the proposed LGA strategy (Chapter 2), the service days allocated for LGA use would be part of 

the total outfitter/guide allocation proposed for each use area and season. Therefore, effects under the 

outfitter/guide allocation indicator are expected to be the same as previously described in the 

Direct/Indirect Effects Summary section (above) for Alternatives 2, 3, and 4. 

There are 40 Large Group Areas (LGA) identified within the Shoreline II Outfitter/Guide EIS project 

area, 7 of which are new proposed LGAs. The other 33 LGAs were designated in the 2004 Shoreline O/G 

FEIS and ROD project and are carried forward in this project. For social encounters, remoteness, and 

popular/high-valued local areas, effects were analyzed for the 7 new proposed LGA sites. 

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04-01B - Sashin Lake Trail

Alternative 4 proposes the largest increase in outfitter/guide allocation with 1,040 service days in the 

summer season. Up to 50 percent (520 service days) could be allocated to LGA use and this is the only 

proposed LGA within the 04-01B use area. Assuming conservatively a minimum group size of 22 persons 

(21 + 1 guide), this translates into approximately 25 groups per season (less than two per week) could 

occur at this site. Sashin Lake Trail is a high-valued location, especially to residents of Little Port Walter 

NOAA research station. With a design feature proposed that requires outfitter/guide groups to adhere to 

the requirements listed in the most current NOAA Little Port Walter Visitor Guide (developed with 

NOAA staff), effects are expected to be moderate. More encounters and sights/sounds of humans are 

expected to occur more than 15 percent but less than 80 percent of the primary use season. Effects from 

Alternatives 2 and 3 are expected to be less than these described for Alternative 4. 

04-03 – Shoals Point

Alternative 4 proposes the largest increase in outfitter/guide allocation with 12,090 service days in the 

summer season. Up to 50 percent (6,045 service days) could be allocated to LGA use and this is the only 

proposed LGA within the 04-03 use area (Eagle River Road LGA is now managed under a separate NEPA

decision). Assuming conservatively a minimum group size of 22 persons (21 + 1 guide), this translates 

into approximately 275 groups per season (18 groups per week) could occur at this site. Considering the 

site access limitations requiring good sea and weather conditions to land at Shoals Point, it is not expected 

that the full potential of service days that could be used at this LGA would be used. However, given these 

same site access limitations, those days that are accessible are likely to also be used by 

unoutfitted/unguided groups. As a result, more encounters and sights/sounds of humans are expected to 

occur more than 15 percent but less than 80 pe3rcent of the primary use season – a moderate effect. 

Effects from Alternatives 2 and 3 are expected to be similar.

04-04B – Middle Arm, Kelp Bay

Alternative 4 proposes the largest increase in outfitter/guide allocation with 10,800 service days in the 

summer season. Up to 50 percent (5,400 service days) could be allocated to LGA use in this use area. 

There are two other LGAs (Lake Eva Trail and Hanus Bay) in this use area that would share this 

allocation. Currently, Lake Eva Trail is used on average 1,630 service days in the summer season; Hanus 

Bay LGA is used five service days. There is demand for more outfitter/guide use at Lake Eva Trail and 

increases in use at this site are expected under all action alternatives. Hanus Bay LGA is expected to 

continue to be lightly used. Assuming conservatively that Lake Eva Trail uses half of the available 

allocation (i.e., 2,700 service days); this would translate into approximately 123 groups per season (about 

8 groups per week) that could occur at the Middle Arm LGA. At this level of use, outfitter/guide groups 

have the potential to displace other outfitter/guide groups operating nearby on most days of the summer 

season. Effects are categorized as a major effect, but localized to this site under Alternative 4. Alternative 

2 proposes the next highest allocation with 6,630 service days in the summer season. Using the same 

logic, approximately 1,650 service days would be available for other LGA use (i.e., 75 groups per season, 

5 groups/week) resulting in more encounters more than 15 percent but less than 80 percent of the primary 

use season--a moderate effect. Alternative 3 proposes the lowest allocation for the action alternatives at 

4,975 service days. Accounting for the current level of LGA use at Lake Eva and Hanus Bay only, this 

leaves about 850 service days available for LGA use at Middle Arm (i.e., 39 groups per season; two 

groups per week). In reality, more use is likely to occur at Lake Eva leaving fewer service days available 

for other LGAs under Alternative 3. Effects under this alternative are expected to be minor.

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04-13 – False Island Camp and Ushk Bay Head

Alternative 4 proposes the largest increase in outfitter/guide allocation with 8,235 service days in the 

summer season. Up to 50 percent (4,117 service days) could be allocated to LGA use in this use area. 

There are four LGAs total in this use area; the two proposed sites and two existing LGAs (Nismeni Point 

and Sitkoh Bay Road) that would share this allocation. Currently, Sitkoh Bay Road is used on average 

192 service days in the summer season; Nismeni Point LGA has not been used in the summer season. 

Demand for outfitter/guide use at these sites is expected to be similar to current use levels. That leaves 

approximately 3,900 service days available for the two proposed sites; which translates into 

approximately 89 groups per season (about six groups per week). At this level of use, more encounters are 

expected more than 15 percent but less than 80 percent of the primary use season --a moderate effect. 

Alternative 2 would have approximately 2,300 service days available for the two new LGAs, which are 

approximately 52 groups per season (about three groups per week). Alternative 3 would have 

approximately 1,700 service days available for the two new LGAs, which translates into approximately 

39 groups per season (about two groups per week). Effects under Alternatives 2 and 3 are expected to 

result in more encounters and sights/sounds of humans less than 15 percent of the primary use season – a 

minor effect. 

04-16E – Port Althorp, Salt Chuck and Head of the Bay

Alternative 4 proposes the largest increase in outfitter/guide allocation with 7,675 service days in the 

summer season. Up to 50 percent (3,836 service days) could be allocated to LGA use in this use area. 

There are three LGAs total in this use area; the two proposed sites and one existing LGA (George Island) 

that would share this allocation. Currently, George Island is used on average 844 service days in the 

summer season. There is demand for more outfitter/guide use at George Island and increases in use at this 

site are expected under all action alternatives. Assuming that George Island uses half of the available 

allocation (i.e., 1,900 service days), this would translate into approximately 43 groups per season (about 

three groups per week) that could occur at the two new LGAs. At this level of use, more encounters are 

expected less than 15 percent of the primary use season – a minor effect. Effects from Alternatives 2 and 

3 are expected to be similar.

In summary, effects under Alternative 4, the highest allocation alternative, ranged from major (Middle 

Arm Kelp Bay), to moderate (Sashin Lake Trail, Shoals Point, False Island Camp, Ushk Bay Head), to 

minor (Port Althorp, Salt Chuck and Head of the Bay). Effects under Alternative 2, next highest 

allocation, are moderate for Sashin Lake Trail, Shoals Point, and Middle Arm Kelp Bay; the remaining 

sites are a minor effect under this alternative. Effects under Alternative 3, the lowest allocation, are 

moderate for Sashin Lake Trail and Shoals Point; the remaining sites are a minor effect under this 

alternative. 

Cumulative Effects 

Cumulative effects result from the incremental effects of actions, when added to other past, present, and 

reasonably foreseeable future actions. Cumulative effects can result from individually minor, but 

collectively significant, actions taking place over a period of time. The following describes the anticipated 

cumulative effects to recreation resources.

Alternatives 1, 2, 3, and 4

Outfitter/Guide Allocation

The only past, present, or reasonably foreseeable future project that may affect outfitter/guide allocations 

is the Hidden Falls Fish Hatchery permit reissuance. Issues have been identified with this project that 

relate to increased visitor use and outfitter/guide activity at this site. It is expected that this EIS will result 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 139 - 
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in a site specific visitor management plan for Hidden Falls Fish Hatchery, which may include setting a 

maximum allocation for outfitter/guide use at this location.

Social Encounters and Remoteness

Trail and Recreation Improvements

Trail improvements are in process at Bohemia Basin (04-15A) and Salmon Lake Trail (04-03), which is 

expected to improve access to NFS lands for recreation visitors. Windfall Harbor shelter (04-09B) has 

been rehabilitated and moved, which will provide an improved overnight stay experience for recreation 

visitors in this area. These improvements may draw more visitors and as a result, more encounters and 

sights/sounds of humans would be expected to occur in these areas. 

In contrast, 2 cabins are in the process of being removed (Rezanof Lake and Maksoutof Lake, 04-02B) 

and one cabin (Distin Lake, 04-07B) is in the process of being converted to a three-sided shelter. Removal 

of the cabins in 04-02B are not expected to affect social encounters because these cabins have been off 

the reservation system for over 25 years and receive little use. However, the removals are expected to 

improve the Remoteness setting by eliminating sights of human structures in this area. The more primitive 

facility at Distin Lake is expected to maintain the same visitation level and is not expected to increase or 

decrease encounters. 

ANILCA Cabins and Tent Platform Permit Renewals

These projects include permit renewals for existing cabins authorized under the authority of ANILCA and 

permit renewals for existing tent platforms. The project area includes permit renewals for 30 ANILCA 

cabins and 2 tent platforms. Since these are all permit renewals for existing improvements, there is no 

expectation of increased effects to social encounters or remoteness settings. It is anticipated that activities 

at these sites will continue as they have been occurring.

Hydropower Projects

There are 5 hydropower development projects in process within the Analysis Area: Sweetheart Lake (01-

05B), Lake Osprey (04-01B), Thayer Lake (04-10B), Tenakee Springs/Indian River (04-12), and Crooked 

Creek/Jim’s Lake (04-16E). All of these projects involve a period of time during which construction 

activities will take place and some level of infrastructure that will be situated on NFS lands. During 

construction, it is expected that sights and sounds of human activity will be increased in the vicinity of 

these projects. Encounters with other groups are expected to be more frequent throughout project 

construction and more occasional after construction activities are complete. Long term effects to the 

remoteness setting are expected in these areas due to the presence of human structures. 

Minerals and Remediation Projects

There is one rock pit expansion project at Eight Fathom (04-11A) that is adjacent to a designated large 

group area (Eight Fathom Dock). Expansion activities will include blasting, processing, and transporting 

of rock materials from this site. There is a remediation project (contaminant cleanup) in the planning 

phase at Fort Babcock/Shoals Point on Kruzof Island (04-03). It is expected that there will be heavy 

equipment, tree cutting, and ground disturbing activities occurring, as well as a temporary camp on site 

for workers. While these projects are underway, more encounters and frequents sights and sounds of 

humans is expected. At Fort Babcock, long-term effects may include improved access to the WWII 

historic site due to upgrading of the old road for remediation activities. 

Vegetation Projects

There are several projects within the Analysis Area that involve timber harvest and thinning activities. 

Thinning projects are in process at Appleton Cove (04-04A), Hanus Bay (04-04B), Corner Bay (04-12), 

Kook Lake (04-12), False Island (04-13), and Sitkoh Lake (04-13). Associated with these projects are 

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permit renewals for 2 temporary sawmills at False Island and Corner Bay. In addition, the Forest Plan is 

undergoing an amendment to transition away from old growth timber harvesting and offer more 

opportunities for young growth management. All of these projects are expected to have increased, but 

short-term, effects to social encounters and remoteness measures while felling and hauling activities are 

underway. Longer term effects are expected in the vicinity of the two sawmills as log sorting, storing, 

processing, drying, and finishing timber occurs. Outfitter/guides operating in the vicinity of these sites 

while projects are underway are expected to experience more encounters and increased frequencies of 

sights/sounds of human. 

Fisheries Projects

There is one fisheries project in process at Davidson Creek Falls (01-04C), where fish passage 

improvements were done. Activities entailed blasting to deepen an existing pool. There were short-term 

negative effects to the remoteness setting from increased sights and sounds of human activity. Long term 

effects to encounters and remoteness setting are expected to be negligible. This is an existing site that was 

modified; therefore the recreation experience available before and after project implementation is 

expected to remain the same.

Land Conveyances

There is a parcel of NFS land near Kook Lake (04-12) that is in process of being conveyed to 

Kootznoowoo Inc., and a parcel of land at Redoubt Falls (04-02A) that is in the process of being 

conveyed to Sealaska Corporation. Currently, outfitter/guide activities are not authorized at Redoubt 

Falls; however, the Shoreline II project is proposing to prohibit outfitter/guide use at Redoubt Falls only 

during the subsistence sockeye season (June 1 to August 31). Outfitter/guide activities outside of this 

season could be permitted. If this proposal is included in the Record of Decision, there may be permitted 

outfitter/guides affected by this land conveyance, as well as the parcel near Kook Lake. Existing 

outfitter/guide permit holders would need to contact the new landowners to obtain permission to conduct 

outfitter/guide activities on their lands. 

Adjacent Projects and Activities

An airport is proposed to service the community of Angoon. The project is still in the planning phase and 

includes some alternatives that may take place on NFS lands, but outside of the project area. This project 

may result in increased visitor use on NFS lands near Angoon including the 04-05A and 04-10B Use 

Areas. If this occurs, it is expected that more encounters would occur as well as increased frequency of 

sights and sounds of humans. These effects are also expected as a result of the Angoon-Mitchell Bay 

Outfitter and Guide environmental assessment, the Kruzof Island Outfitter/Guide decision, and the Pack 

Creek Zoological Area Outfitter/Guide decision. Each of these projects is providing more opportunities 

for outfitter/guide services adjacent to the Shoreline II Outfitter/Guide EIS project area.

Activities occurring on along marine waterways and in the airspace surrounding NFS lands within the 

Analysis Area have the potential to impact recreation experiences. This EIS defines a social encounter as: 

when a person or group located on NFS lands becomes aware of the presence of another person or group 

located on or immediately adjacent to NFS lands. National forest visitors who are recreating adjacent to 

common travel corridors (water and air) are expected to have more encounters and increased frequencies 

of sights and sounds of humans. 

Popular or High-Value Local Areas

There are 9 (of 146 identified) popular or high-value local areas associated with the past, present, and 

future projects discussed previously. These 9 areas were referenced above in the individual use area

Environmental Consequences section. 

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Table 3-24: Popular or high-value local areas associated with past, present, or future projects

Use Area Popular/High-Value Area

01-05B Sweetheart Creek

04-03 Salmon Lake Trail

04-04A Appleton Cove

04-04B Hanus Bay

04-11A Eight Fathom

04-12 Kook Lake

04-13 False Island

04-13 Sitkoh Lake

04-15A Bohemia Basin

The Sweetheart Lake hydropower project is expected to maintain adequate habitat conditions for sockeye 

salmon; no cumulative effects to the recreation resources at this location are anticipated.

At Salmon Lake Trail, it is expected that short term negative effects will occur during trail reconstruction 

due to access limitations. However, improvements are expected to have positive affects overall for the 

recreation resources of this site by improving the hiking experience for the forest visitor. 

Thinning projects at Appleton Cove, Hanus Bay, Kook Lake, False Island, and Sitkoh Lake are expected 

to have short-term negative effects to recreation visitors in these areas due to chainsaw noise and 

associated human activity. However, in the long term, these projects are expected to have an overall 

positive effect on these areas, due to the forest health and habitat improvements that these projects are 

providing. Local residents use these areas for deer hunting, fishing, hiking, and subsistence activities. 

Outfitter/guides use these areas for brown bear and deer hunting, wildlife viewing, fishing, hiking, and 

other remote setting nature tour activities. These types of activities are expected to benefit in the long

term from these projects.

Activities in the Eight Fathom area include cabin use, camping, hiking, fishing, hunting, water fowling, 

subsistence use, and gathering forest products. It is expected these activities will not be affected by rock 

pit expansion and forest visitors will continue to have opportunities to participate in these activities in this 

area.

At Bohemia Basin, common activities include shelter use, camping, hiking, day use picnicking, fishing, 

hunting, sightseeing, subsistence use, and gathering forest products. Trail improvements are expected to 

enhance the ability for guided and unoutfitted/unguided visitors to participate in these activities. The 

overall effect of this EIS is expected to be positive for this high-value area.

Cumulative Effects for Actions Common to Alternatives 2, 3, and 4 

Big Game Management

For the projects described previously, there may be short term negative effects to big game guide

activities from increased sights and sounds of humans during project implementation. If these projects 

take place during hunting seasons, the effects may result in reduced opportunities for a successful hunt in 

the vicinity of project activities. In the long term, overall positive effects are expected from the vegetation 

projects (improved forest health and habitat), recreation improvements (improved access to NFS lands), 

and fish passage improvements (food supply for certain big game species). Any of the development 

projects are expected to have a negative effect at a local level over the long term due to reduced forest 

habitat at those sites (e.g., hydropower development) and reduced opportunity for hunting in the those 

locations. The adjacent outfitter/guide allocation decisions are expected to result in more visitor services 

offerings in those areas, which are expected to result in more sights and sounds of humans. The Kruzof 

Island Outfitter/Guide decision included a prohibition on outfitter/guide use of the Eagle River Road LGA 

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Environmental Consequences—Chapter 3

from May 21 to May 31, which is a common time period for guided brown bear hunting activities in that 

area. This should minimize encounters from other outfitter/guide operators during that timeframe. 

Adaptive Management

The Adaptive Management strategy provides a process for increasing or decreasing the outfitter/guide

allocation of the selected alternative. When considered in combination with the other past, present, and 

future projects, effects to outfitter/guide activities and allocation are expected to be the same as those 

previously discussed. 

Large Group Area Management

There is one rock pit expansion project at Eight Fathom (04-11A) adjacent to a designated large group

area (Eight Fathom Dock). There is a remediation project (contaminant cleanup) in the planning phase at 

Fort Babcock/Shoals Point on Kruzof Island (04-03). While these projects are underway, more encounters 

and frequents sights and sounds of humans is expected at these LGA sites. At Shoals Point, long-term 

effects may include improved access to the WWII historic site due to upgrading of the old road for 

remediation activities. 

There are 4 LGAs (04-04B Hanus Bay, 04-12 Corner Bay Road, 04-13 False Island Camp, and 04-13 

Sitkoh Bay Road) likely to be affected by timber harvest and thinning activities, and permit renewals for 2 

temporary sawmills at False Island and Corner Bay. Short-term negative effects are expected while felling 

and hauling activities are underway. Longer term effects are expected in the vicinity of the two sawmills 

as log sorting, storing, processing, drying, and finishing timber occurs. Outfitter/guides operating at 

LGAs in the vicinity of these sites while projects are underway are expected to experience more

encounters and increased frequencies of sights/sounds of human. 

Summary of Cumulative Effects 

In summary, all of the projects analyzed for cumulative effects involve site specific activities. 

Individually, there are short term negative affects expected during project implementation at all of the 

project sites. These include increased encounters and higher frequencies of sights and sounds of human 

activity (e.g., chainsaw noise from thinning projects). In the long-term, some projects are expected to 

have overall positive effects. For example, cabin removals are expected to improve the remoteness setting 

by reducing sights of human structures in the project area. Other projects are expected to have no effect 

on encounters and sights/sounds of humans in the long term after project implementation (e.g., fish 

passage improvements). And some projects are expected to result in more encounters and sights/sounds of 

humans over the long-term, which include trail and recreation facility improvements, airport services, as 

well as outfitter/guide allocation projects adjacent to the project area (i.e., Pack Creek Zoological Area 

decision, Kruzof Island Outfitter/Guide decision, and Angoon-Mitchell Bay Outfitter and Guide 

environmental assessment to be completed early 2016). These projects are expected to draw more visitors 

due to the improved facilities and more outfitter/guide use, resulting in increased encounters and 

sights/sounds of humans. 

For popular or high-value local areas, no cumulative effects to the recreation resources are anticipated at 

Sweetheart Creek and Eight Fathom. Overall positive cumulative effects are expected at Salmon Lake 

Trail, Appleton Cove, Hanus Bay, Kook Lake, False Island, Sitkoh Lake, and Bohemia Basin. Projects at 

these sites are expected to improve the hiking experience for forest visitors or provide long-term forest 

health and habitat benefits that translate into more availability of resources enjoyed by forest visitors.

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Heritage 

Introduction

Heritage resources on the Tongass National Forest include a diverse array of prehistoric and historical 

sites and are evidence of at least 10,000 years of human occupation and use. Although the exact date of 

Tlingit occupation is not known, oral histories and ethnographic accounts indicate that the Tlingit have 

occupied Southeast Alaska for centuries and were expanding their occupation northward at the time of 

European contact. The Shoreline II Outfitter/Guide EIS Analysis Area encompasses the north half of the 

Tongass National Forest, and crosses the traditional boundaries of several Tlingit Kwans. The Analysis 

Area falls into the traditional territory of the following Tlingit Kwans (listed geographically from south to 

north): Kake, Sitka, Angoon, Taku, Auk, Hoonah, Chilkoot, and Chilkat. These groups have left their 

mark on the land evidenced by a variety of sites: villages, seasonal campsites, rock art, sacred and 

religious areas, and subsistence places.

Affected Environment

Prehistory 

Archeological investigations indicate that people have occupied Southeast Alaska for the last 10,000 years 

and that human occupation centered on the ocean, especially the resources near shore of this biologically 

rich region (Moss 1998). Site location, artifacts, and faunal assemblages all indicate the importance of 

maritime resources as the basis for human occupation. However, several major changes in lifestyle and 

subsistence took place during the next several thousand years. The native peoples had an early stage or 

period represented by flaked stone technology, especially the presence of microblades, with subsistence 

focused on marine mammals rather than fish. Ground Hog Bay II and the Hidden Falls Sites, both located 

within this region, date to this period and represent mainland and island locations. 

Ground stone tools and the development of techniques for mass harvest and storage of salmon 

characterize later periods. Defining characteristics of the middle period or stage is an increase in the 

number and size of archaeological sites, more diversified bone tool assemblages and wood stake fish 

weirs and traps. This shift appears to mark the beginning of the Northwest Coast culture pattern in the 

assessment area. 

Further, the number of sites identified as forts and dated by radiocarbon analysis suggests an increase in 

conflict during the most recent period in both chronologies. A continuation of site types and an increase in 

fort sites, supplemented with written historical accounts, help define the period leading up to the historic 

era. 

Tlingit migration and settlement theories often center on events rather than dates. A major theme in 

Tlingit legend depicts a great flood. Many clans claim local origin while others claim settlement after the 

flood. The latter groups are said to have sought refuge from the flood on mountains and returned to the 

coast after the waters receded (Arndt et al. 1987). Resident groups encountered during Tlingit migration 

and settlement were either absorbed or pushed out (Arndt et al. 1987).

Historic Era 

Although it was an inauspicious beginning, Russia was the first European country to explore Alaska. First 

contact occurred in 1741 when Vitus Bering and Aleksei Chirikov sailed from Kamchatka in two ships. 

Shortly after the journey began these ships separated. Although Chirikov sighted land on July 15, he 

continued north for several days until a potential landing place was identified at 57° 50’N. This would be 

Chapter 3 - 144 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

at the south end of Lisianski Inlet between Yakobi and Chichagof Islands. During the next few days, 

Chirikov sent 2 longboats and 15 men ashore to investigate but none returned. Bering and his crew 

abandoned ship on the Commander Islands, east of the Kamchatka Peninsula where they spent the winter, 

and Bering died of scurvy. His crew rebuilt the ship and returned to Russia in the spring carrying sea otter 

pelts that eventually commanded high prices in China. These pelts and the stories of their abundance 

brought Siberian hunters to the Aleutian Islands who claimed Alaska for Russia. These events led to the 

formation of the Russian-American Company and settlements in Yakutat (1796) and Sitka (1799) both of 

which were the locations of battles with the local Tlingit. Russia eventually made Sitka its colonial capital 

city and center of the Russian-American Company. 

The fur trade expanded and attracted the attention of Spanish explorers, already exploring American’s 

Pacific coast in the mid eighteenth century. Captain James Cook, with the English Royal Navy, started 

exploring the Alaskan coast, naming a number of places in 1778. Unlike Russia, England focused on 

terrestrial mammals and the Hudson’s Bay Company was the principle participant. To control this trade 

they built a network of posts at the mouths of large rivers that connected to the interior of British 

Columbia. 

France was also eager to explore and possibly enter the fur trade and sent La Perouse to claim possession 

of territory for France in Alaska. By 1800, the coastline from California to the Aleutian Island had been 

charted. American whalers had traded freely along the shores of Bering Strait since the 1840s. 

Throughout the 1850s and 60s Russia felt the pressure of expanding American and British interests on the 

American coast. 

With the Treaty of Cessation, the United States claimed Alaska as a territory in 1867 and entered a period 

of military rule, represented at first by the U.S. Army (1867-1877), with Sitka as its sole garrison. For few 

brief years, the newly acquired territory was a U.S. Customs District (1877- 1879) and Sitka was a port of 

entry. A sole naval vessel was assigned to Alaska, based in Sitka, when the territory came under U.S. 

Navy rule (1879-1884). 

Following the transfer from Russia, the fish industry and mining became important industries, both 

relying heavily upon associated timber harvest. The first salmon canneries in Alaska were at Klawock and 

Old Sitka, followed by one at Chilkat Inlet and Boca de Quadra by 1883. Eventually canneries were 

located in several locations on the Taku River, Admiralty Island, Port Snettisham, Chichagof and Baranof 

Islands. Fishing techniques changed from traditional methods to include purse seines, pile-driven traps, 

and floating traps. Improved packing technology and the establishment of the salmon canneries caused 

the development of seasonal communities around those canneries. These canneries had diverse 

populations, typically Euro-American fishermen and Asian and Native-American cannery crews. 

Herring were also commercially harvested with herring reduction plants beginning as early as 1879. The 

Northwest Trading Company began experimenting with the extraction of oil and manufacture of fertilizer 

at its Killisnoo station on Admiralty Island. By 1919, there were 3 more herring reduction plants along 

Chatham Strait, and by 1927, there were 18 large plants involved in the industry. Production peaked in 

1929, and the fishery continued on a limited basis into the 1960s (Arndt et al 1987).

Three shore-based whaling facilities were established in Southeast Alaska. Around 1880 the Northwest 

Trading Company established a whaling station at Killisnoo that processed finback whales for oil and 

baleen. In 1907, the Tyee Whaling Company constructed a station on Admiralty Island to process 

humpback, finback, and blue whales for baleen and oil. The whales were processed into fertilizer after 

rendering the oil. Finally, in 1912, the United States Whaling Company began operations at Port 

Armstrong on Baranof Island; the company’s three steamers hunted finback, humpback, blue, and sperm 

whales, using all parts of the whale as at Tyee. The plant could process 500 whales per season, but actual 

production never reached that mark, and by 1923 the company was bankrupt (Arndt et al 1987). 

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Gold, while known to exist in the area prior to the Russian transfer of Alaska to the US, had not been 

commercially exploited. In the 1870s, small-scale placer finds in the Sitka area and Windham Bay gave 

rise to additional exploration. The discovery of gold in the Juneau area in 1880 however, was the 

beginning of large-scale mining in the region and resulting in an influx of people moving to mining 

centers. Other early mining efforts occurred but it was within the Juneau area that mining operations were 

most sustained and intense. The native population was brought into the cash-economy through these early 

mining efforts. 

Salteries and canneries needed large amount of lumber and represent the earliest industrial logging and 

milling operations. By 1889, both steam and water sawmills were reported and timber was produced for 

docks and buildings, plus lumber for boats, barrels and boxes. In the early 20th century timber was used 

by the mine and quarry operators for buildings and railroads and by the fishing industry for their wharves, 

buildings and netting constructions. 

On August 20, 1902 the Alexander Archipelago Forest Reserve was established and the Tongass Forest in 

July 1907. In 1908, the Alexander Archipelago and the Tongass Forest consolidated into a single national 

forest, the Tongass National Forest, with a total area of 6.7 million acres. It was enlarged again in 1909 

adding another 8.7 million acres (Rakestraw, 2002). The early 20th century saw the beginning of the 

significant government involvement in the regions and the effects on the region and to the Native 

population, as access to traditional lands and resources became limited. 

The first decade of the 20th century were years of great experimentation in fur farming. Blue foxes 

proved to be the most profitable but farms also tried mink, marten, skunk, raccoon, beaver, and muskrat. 

The fur industry grew sporadically until 1911 when legislation to protect fur seals and sea otter was 

passed. This drove the price of a single pelt from about $12.50 to an average of $185 in 1919. By the 

early 1920s, blue fox farming was flourishing, and by 1928, Alaska had 391 fur farm permits. Populating 

small islands with free-roaming fox was common, and once a breeding population was established, fox 

could be profitably harvested for fur or breeding stock. Nine thousand three hundred fox pelts sold in 

1929 for $900,000, making it the third largest industry in the State behind fishing and mining. The Great 

Depression spelled the end of the industry as pelt prices dropped to $32 by 1931. 

During the 20th Century, several events increased the need for lumber, most were short-term and could 

not support a regular industry. Examples of this kind of demand include spruce suitable for airplane 

construction during World War I, wood for cannery construction and shipping crates for the salmon 

industry, and the early pulp industry. In 1910, the Forest Service began to negotiate over several pulp 

sales; none was ever finalized. Eventually the Alaska Paper and Pulp Company built a small mill the head 

of Speel Arm in Port Snettisham in 1921 and shipped more than 100 tons of pulp to Seattle. However, 

shipping proved too costly and the company soon closed down. However, after World War II, depletion of 

the forests of the Pacific Northwest and rising prices for pulp and paper made the development of 

Southeast Alaska’s pulp industry possible (Arndt et al 1987). Several mills were constructed during the 

1950s that continued until the mid-1990s. 

Henry Villard organized the first large tourist excursion to the Alexander Archipelago. He brought 80 

passengers to view the Inside Passage in 1881 and in 1883; he linked the newly completed Northern 

Pacific Railroad to his Oregon Railway and Navigation Company. This provided access from the East 

Coast and the Midwest all the way to Alaska (Arndt et al 1987). By 1884, as many as 1,650 people visited 

Southeast Alaska; however, the lack of adequate accommodations hindered the expansion of tourism. The 

Pacific Coast Steamship Company began monthly sailings through the Panhandle in 1881 and by 1884 

had begun to offer a regularly scheduled ‘Inside Passage Tour.” By the late 1880s, additional steamship 

companies had taken up the route. The Alaska Steamship Company, founded in 1894 became one of the 

largest (Hall 2007).

By 1905, Alaska was spotlighted on the world stage as a fashionable tourist destination. Early travelers to 

the region like John Muir wrote of a unique and exotic wilderness frontier, still untrammeled by man. 

Chapter 3 - 146 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Prior to the Alaska Highway, the only practical way for tourists to reach Alaska was by boat. Boats remain

a common means of access to the region today.

Before development of road infrastructure in coastal communities, in particular in Juneau, steamship 

companies offered stops at tidewater glaciers such as the Taku, Davidson and the Muir. As steamship 

routes expanded, travel to the south central coast of Alaska became possible, and with the infrastructure 

that came, hand-in-hand with gold rushes, more and more of Alaska’s non-coastal territory became 

accessible. However, the lure of Alaska’s southeast coast never diminished. Henry Gannet, a geographer

on the 1899 Harriman Expedition, was quoted as predicting “[t]he Alaska coast is to become the 

showplace of the earth and pilgrims, not only from the United States, but from far beyond the seas, will 

throng in endless procession to it” (Hall 2007). He was right. The number of tourists visiting Alaska’s 

southeast shores has been on an ever-increasing trend since the late 1880s. With very few downturns, the 

number has grown from the first regularly scheduled steamboat tours which carried a total of 1650 

‘excursionists’ on a loop through the Panhandle in 1884 (Hall 2007) to the staggering 1 million plus 

(JEDC 2009) who now come aboard massive cruise ships to experience the wonders of this inland coast. 

Ethnographic Overview and Traditional Territories 

An overview of Tlingit social organization is helpful in order to understand land use patterns and current 

consultation responsibilities in regards to Tribal relations. The following discussion is summarized from 

several sources including Goldschmidt and Haas (1998), Emmons (1991), and DeLaguna (1990). 

When Europeans arrived, they found the Tlingit nation occupied most of Southeast Alaska from Prince of 

Wales Island to Yakutat. “Nation” in this sense is defined as a people with common language, customs, 

traditions and religious beliefs that set them apart from their neighbors. Within the Nation are named 

territories that have defined geographical limits, and contain one or more permanent winter villages. 

In 1946 Walter Goldschmidt, Theodore Haas, and Joe Kahklen conducted an investigation of traditional 

Tlingit land and water use patterns. From this study they identified seven traditional territories that are 

within this Analysis Area. More complete descriptions are found in Goldschmidt and Haas (1998), but 

Table 3-24 presents an overview of these territories. For simplicity, large bodies of water describe 

territorial boundaries in the following table. Although the Tlingit recognized the Nation and the Territory, 

no political structure or leadership existed at that level. 

Table 3-25: General extent of Tlingit territories in the analysis area 

Territory General Vicinity

Angoon Central Chatham Strait: the western and southern portions of Admiralty Island and eastern 

Chichagof Island

Auk Berners Bay, Lynn Canal, and Seymour Canal. Also, portions of the mainland, Douglas Island, 

and Admiralty Island

Chilkat and

Chilkoot East and west sides of the north end of Lynn Canal. Territory extends into the interior.

Hoonah Primarily the north end of Chichagof Island and the adjacent mainland: Glacier Bay, Cross 

Sound, Icy Strait, Port Frederick, and the outer coast to Cape Fairweather 

Kake South end of Chatham strait, Frederick Sound, and Keku Strait: western Kupreanof, northern 

Kuiu, southeastern Admiralty, and southeastern Baranof islands

Sitka Pacific coast of Chichagof and Baranof islands and up Peril Strait to Hoonah Sound

Taku Stephens Passage: primarily the mainland but also some of Admiralty Island and the south end 

of Douglas Island

Shoreline II Outfitter/Guide DEIS Chapter 3 - 147 - 
Chapter 3—Environmental Consequences

On the other hand, Tlingit social structure has subdivisions (moiety, clan, and house) that have defined 

leaders or perform important social functions. An example of the latter is the moiety, which does not have 

defined leaders, but serves critical roles. Tlingit society has two moieties (halves), and every Tlingit

belongs to one or the other. Members of each moiety are present in all communities. These moieties are 

matrilineal and exogamous; lineages are traced through the female parent, and members are required to

marry a member of the opposite moiety. Raven and Eagle (or Wolf) is the recognized moieties among the 

Tlingit.

Moieties are then subdivided into clans that may be present in more than one territory. Each clan remains 

an independent body under its own leader. Emmons described the clan as “the active principle of life, the 

law, and the religion of the Tlingit. It takes precedence over every other organization” (1991:23), while de 

Laguna states that clans “held primary territorial rights” (1990:204). Within the clan are households 

governed by a house chief whose influence is relatively the same as the clan chief. Waterways were free

for all to use, but land was divided among clans and subdivided by house and family. Each house had 

rights to designated salmon streams and areas for fishing, hunting, and berry collection (Emmons 1991). 

Travelers through another’s territory could gather food but not for profit (Emmons 1991). Goldschmidt

and Haas(1998) concluded that: 

• Tlingit and Haida were divided into tribes, each of which has been recognized;

• Each tribe had one or more major communities;

• Each had a distinct territory recognized by themselves and the neighboring communities;

• Territories were held under a recognized tenure system by the clans of each community;

• Ownership of land was recorded in tradition by means of the potlatch and totem pole;

• Lands, beaches, and waters were used intensively by the ancestors of the people now dwelling in this

area, according to the Native customs of matrilineal succession;

• Use of these lands, beaches, and waters continued to be significant in the daily life of the Natives

living in this area; and

• Outfitter/guide use of land is made along with the home use and, together with the latter, form the

basis for the livelihood of the inhabitants.

The National Historic Preservation Act and Section 106 

36 CFR Part 800 Regulations implementing Section 106 of the National Historic Preservation Act 

(NHPA), amended May 18, 1999, require Federal agencies to take into account the effects of their 

undertakings on historic properties, in consultation with other interested parties. The process involves 

identifying the area of potential effect (APE), in identifying the cultural resources within the APE and 

evaluating them for eligibility for inclusion on the National Register of Historic Places. Historic 

properties are defined as those archaeological sites, including any prehistoric or historic district, site, 

building, structure, or objects, that meet the eligibility criteria for inclusion on, or are listed on, the 

National Register of Historic Places. 

The National Register is the Nations’ inventory of significant historic places. The Criteria for Evaluation 

(36 CFR 60.4) are written broadly to recognize the wide variety of historic properties associated with our 

Nation’s history and prehistory (USDI, 1997). The quality of significance in American history, 

architecture, archaeology, engineering, and culture is present in districts, sites, buildings, structures and 

objects that possess integrity of location, design, setting, materials, workmanship, feeling, and association 

and: 

A. That are associated with events that have made a significant contribution to the broad patterns of our

history; or

Chapter 3 - 148 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

B. That are associated with the lives of persons significant in our past; or

C. That embody the distinctive characteristics of a type, period, or method of construction, or that

represent the work of a master, or that possess high artistic values, or that represent a significant and

distinguishable entity whose components may lack individual distinction; or

D. That have yielded or may be likely to yield, information important in prehistory or history.

At every step in the analysis there is on-going consultation with federally recognized tribes, ANCSA 

corporations, certified local governments and other interested parties. The Alaska State Historic 

Preservation Officer (SHPO) provides oversight and comments on the agency’s compliance with Section 

106 of the National Historic Preservation Act. 

After the historic properties within the APE have been identified, the next step is to assess the potential 

effects to the historic properties. This determination can be one of three findings: no historic properties 

affected, no adverse effect, or adverse effect. A finding of no historic properties affected can be made if 

no historic properties are present within the area of potential effect or if they can be avoided. If historic 

properties are identified within the area of potential effect and will be affected the effect can be 

determined to be adverse or not adverse. 

If historic properties are present and will be affected but the effects will not diminish the characteristics 

that make them significant and will not result in a loss of integrity of the site, the determination would be 

no adverse effect. 

• Physical destruction of or damage to all or part of the property;

• Alteration of a property, including restoration, rehabilitation, repair, maintenance, stabilization,

hazardous material remediation, and provision of handicapped access, that is not consistent with the

Secretary's standards for the treatment of historic properties (36 CFR part 68) and applicable

guidelines;

• Removal of the property from its historic location;

• Change of the character of the property's use or of physical features within the property's setting that

contribute to its historic significance;

• Introduction of visual, atmospheric or audible elements that diminish the integrity of the property's

significant historic features.

Heritage Program management procedures on Forests in the Alaska Region have been streamlined for 

efficiency in the “Third Programmatic Agreement Among The USDA Forest Service, Alaska Region, The 

Advisory Council On Historic Preservation, and the Alaska State Historic Preservation Officer Regarding 

Heritage Program Management on National Forests in the State of Alaska.”

Tribal Consultation 

Chapter 1 contains a brief mention of tribal consultation for this EIS. A complete list of tribal consultation 

is available in the project record.

Previous Heritage Resource Investigations 

The Heritage Resource Sensitivity Zone Model, developed from over 35 years of investigations on the 

Tongass National Forest, informs the Forest Service’s investigations. The Third Amended Programmatic 

Agreement among the USDA Forest Service, Alaska Region, the Advisory Council on Historic 

Preservation, and the Alaska State Historic Preservation Officer Regarding Heritage Program 

Management on National Forests in the State of Alaska articulates the model that is used. Two sensitivity 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 149 - 
Chapter 3—Environmental Consequences

zones have been developed to determine the likelihood of the presence of historic properties; these are 

high and low. 

High sensitivity zones are those areas as defined below:

• All land between mean low water 100 feet in elevation above mean high water, with no consideration

of slope;

• Areas of former lode and placer mining activity;

• River valleys, lake and river systems providing passes or portages across larger landmasses;

• Lakes and stream systems containing, or known to have contained, anadromous fish runs, including a

focus on barrier falls locations in such systems;

• Elevated/fossil marine, river, and lake terrace systems;

• Cave and rock shelters, areas of karst landforms and rock formations known for caves and rock

shelters;

• Areas associated with myths and legends such as traditional cultural properties or cultural landscapes;

• Known sources of potential raw materials (obsidian sources, exceptional concentrations of cedar

trees);

• Alpine areas if ethnographic or historic evidence or previous surveys conducted nearby indicate

cultural use, such as high elevation mountain peaks overlooking saltwater that may contain rock

cairns; and

• Other areas identified through historical, ethnographic or oral history research and information

sources.

Low Sensitivity zone is all land not relegated to the high sensitivity zone.

Since the analysis focuses on shoreline activities, much of the 5,300 miles of the Analysis Area is in the 

High Sensitivity Zone. However, not all of the shoreline is considered high sensitivity. 

This analysis is primarily built upon work done prior to and including the work done in 1999 – 2003 in 

support of the 2004 Shoreline O/G FEIS and ROD (USDA, 2004). At that time inventories were 

conducted at most of the LGAs, rather than across the entire Analysis Area as it was believed that these 

areas would receive the most intensive use and potential for effects to historic properties. As described in 

the Project Description, the size of the Analysis Area, the concentrated use within the LGAs, the types of 

recreational activities permitted, outfitter/guide group size, permit stipulations, the scope of the EIS, and 

the Heritage Resource Sensitivity Zone model, guided the decision then to examine the LGAs in detail. 

In the 2004 Record of Decision, the Forest Service stipulated that each LGA would be monitored at least 

once over the life the decision (5 to 7 years). Additionally the Forest Service stipulated that field 

observations at four of the LGAs (North Windham, George Island, Todd Road and Sand Bay) would be 

conducted annually. 

The numerous archaeological surveys within the Shoreline II O/G EIS project area, beginning in the 

1970s, have resulted in the location and documentation of 721 sites recorded on National Forest System 

lands on the Alaska Heritage Resource Survey (AHRS), within the APE. Of those sites, the majority are 

unevaluated, and have not been determined either eligible or ineligible for the National Register of 

Historic Places. Sites that have not formally been determined eligible are treated as eligible, until 

determined not eligible for inclusion on the National Register of Historic Places. Table 3-26 presents a 

summary of these investigations; number of surveys completed prior to 2004, miles surveyed by 2004, 

and the number of sites documented, in each of the use areas, in 2004 and in 2015. These investigations 

examined in excess of 718 miles of shoreline, including 40 of the LGAs, and identified 721 sites recorded 

Chapter 3 - 150 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

on the National Forest system lands. Twenty-four sites are within LGAs. Additionally, 4 sites are in the 

immediate vicinity (within 500 feet) of the LGA but outside the plotted polygon. 

The number of surveys and miles surveyed in the following table is based on the analysis completed in 

2004, while the number of sites has been increased to those recorded at the time of the current analysis 

(2015). This more accurately reflects the current inventory of sites recorded on the National Forest within 

the project area. The increased number of sites in 2015 reflect those recently documented, or sites that are 

wholly or partially on National Forest lands but also potentially partially on lands or within a historic 

district partially managed by other agencies (i.e. National Park Service). In some cases, there is an 

increase or decrease in numbers of sites within a use area because the land status is not clear. An example 

of this would be petroglyph sites that can be in the intertidal on either state lands, if below mean high tide, 

or on national forest system lands if in the uplands. In some cases, the number of sites has decreased due 

to lands being conveyed out of federal management to the State, ANCSA corporations, or as a final 

adjudication of Native Allotments. Another reason for site numbers to vary from those reported in 2004 is 

that use areas have been subdivided in some cases for the purpose of this EIS. In the 2004 Shoreline O/G 

FEIS and ROD there were 37 use areas and for this EIS there are 48 use areas. 

Table 3-26: Previous heritage resource investigations in the analysis area

Use Area

Number

of

Surveys

Prior to 2004

Miles

Surveyed

(2004)

Number of

Sites Documented 

Prior to 2004

Number of Sites 

Documented (2015)

01-01 5 2.00 5 10

01-02 2 2.00 0 0 

01-03 9 15.00 13 13

01-04A 11 29.00 6 56

01-04B 3 4.00 13 20

01-04C 5 1.00 4 27

01-04D 1 5.00 0 2 

01-04E - - - 3 

01-05A 2 0.50 1 4 

01-05B 1 0.25 2 13

01-05C 30 52.00 14 26

01-05D 16 4.50 4 0 

01-05E - - - - 

01-05F - - - 8 

04-01A 8 3.50 3 7 

04-01B 78 28.00 6 12

04-01C - - - - 

04-02A 9 2.50 8 5 

04-02B 22 4.00 15 22

04-02C - - - 9 

04-02D - - - 2 

04-03 76 76.50 53 75

04-04A 17 41.50 8 6 

04-04B 28 73.50 16 24

04-04C 1 0.50 1 0 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 151 - 
Chapter 3—Environmental Consequences

Use Area

Number

of

Surveys

Prior to 2004

Miles

Surveyed

(2004)

Number of

Sites Documented 

Prior to 2004

Number of Sites 

Documented (2015)

04-05A 35 14.00 23 46

04-05B - - - - 

04-06A 14 8.50 8 11

04-06B 17 6.00 8 10

04-07A 38 16.00 18 19

04-07B - - - 18

04-08 13 10.50 5 12

04-09A 16 10.50 6 9 

04-09B - - - 5 

04-10A 2 3.00 4 4 

04-10B 4 2.50 3 10

04-11A 41 63.50 36 22

04-11B - - - 37

04-12 49 129.00 55 41

04-13 80 72.50 36 52

04-14 26 5.50 10 21

04-15 61 19.00 22 - 

04-15A - - - 8 

04-15B - - - 7 

04-15C - - - - 

04-15D - - - 28

04-16A 8 5.00 0 - 

04-16B 6 2.50 4 5 

04-16C 8 2.00 3 3 

04-16D 8 3.00 2 2 

04-16E - - - 7 

Totals 750 718.25 415 721

Rows with no values indicate the use area was subdivided for the 2015 analysis therefore has a number of 

sites documented, but not the number of miles of survey or the number of surveys, in the 2004 analysis it 

was part of the larger use area. Alternatively, if a use area has no values across the entire row there have 

been no surveys or sites documented in the use area. 

Summary

Over 750 surveys of varying size and intensity have been completed within the Shoreline II O/G EIS

project area. 721 sites have been documented and over 718 miles of shoreline have been inventoried for 

the presence of historic resources. 

Section 106 of the National Historic Preservation Act (NHPA) requires Federal agencies to consider the 

effects to historic properties as a result of their undertakings. Issuing special use authorizations for 

outfitter/guide recreation has the potential to effect historic properties throughout the APE. However, the 

most concentrated use is anticipated to be within the LGAs. Table 3-27 lists the LGAs with sites and 

Chapter 3 - 152 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

historic properties. Nineteen LGAs have one or more sites within their boundaries. Twenty-four sites are 

located within LGAs. Table 3-27 also shows the 6 LGAs that have one or more historic properties 

(eligible sites) within their boundaries and need to have a management plan that clearly articulates the 

manner in which agencies will avoid or minimize effects to these historic properties prior to issuing or reissuing special use authorization for outfitter/guide use within these LGAs.

Consultation occurred with Haa Léelk’w Hás AaníSaax’ú Our Grandparents’ Names on the Land and 

found that 14 of the LGAs have one or more Native Place Names that have been documented. In some 

cases, more than one Kwáan has a name listed; in those cases, both names were provided (Table 3-27).

Seventeen sites within LGAs have not yet been evaluated for eligibility and are therefore managed as 

eligible, per the Forest Plan. Those sites need to have determinations of eligibility completed to ensure 

that they are, in fact, historic properties (eligible) and need to be managed as such. If determined eligible, 

a management plan to ensure the protection of these sites needs to be completed to avoid or minimize 

effects to these historic properties prior to issuing or re-issuing special use authorization for 

outfitter/guide use within these LGAs. If the sites are determined not eligible then the Forest Service has 

no further responsibilities to protect the site. This information is shown in Table 3-27 below: 

Table 3-27: LGAs that have significant sites and Native Place Names (within the LGA as discernible)

Use 

Areas

Large 

Group

Area

AHRS Sites 

Present 

to be evaluated 

or 

Interpreted

Management Plan 

Needed 

Native Place Name and Translation

(Thorton, 2012)

01-01 Katzehin 

Falls

SKG-566 - 

Unevaluated

If Determined 

Eligible

01-02 Sullivan 

Mountain

Yaana.eit Xágu – Wild Celery Spit (Jilkáat 

and Jilkoot

Kwáan)

01-05C North 

Windham

*SUM-022 -

Eligible Yes

S’iknaxsáani- Black Bear Community 

Freshwater Bay

(Kéex’ Kwáan, Kooyú Kwáan and S’awdáan 

Kwáan) 

01-05C Sand Bay

SUM-040 - 

Unevaluated

SUM-041- 

Unevaluated

SUM-123 - 

Unevaluated

If Determined 

Eligible

04-01B Sashin 

Lake Trail

XPA-350 - 

Unevaluated

XPA-297 - 

Unevaluated

If Determined 

Eligible

04-03 Shoals 

Point SIT - 457 - Eligible Yes

04-04B Lake Eva 

Trail

**SIT-778 – 

Unevaluated

If Determined 

Eligible

Gáchkw Yayuwaa Gatheéeni – Gáchkw 

Shoreline Sockeye

Stream (Sheet’ká Kwáan) 

Gáchgu Héen – Gáchgu Creek (Xutsnoowú 

Kwáan) 

04-04A Point 

Elizabeth

Dadzi X’aaui – Firestone Point (Sheet’ká 

Kwáan) 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 153 - 
Chapter 3—Environmental Consequences

Use 

Areas

Large 

Group

Area

AHRS Sites 

Present 

to be evaluated 

or 

Interpreted

Management Plan 

Needed 

Native Place Name and Translation

(Thorton, 2012)

04-04A Rodman 

Bay 

**SIT-778 – 

Unevaluated

If Determined 

Eligible

04-04B

Middle 

Arm, Kelp

Bay 

Tsisk’u Sáani – Owl Freshwater Bay 

(Xutsnoowú Kwáan) 

Yéikheen.áa – Spirit Water Lagoon 

(Xutsnoowú Kwáan) 

04-08 Cordwood 

Creek

JUN-917 - 

Unevaluated

If Determined 

Eligible

04-08 Fowler 

Creek

JUN-918 - 

Unevaluated

If Determined 

Eligible

Weineidei Aan (Weineideiyan) – Alkali 

Deposit Village – 

(Áak’w Kwáan) 

04-11B Iyoukeen 

Peninsula

SIT-675 - 

Unevaluated

If Determined 

Eligible 

Aawateeni Héen – Water Storming Off 

(Xunaa Káawu) 

04-11B Kennel 

Creek

SIT-092 - 

Unevaluated

If Determined 

Eligible

04-11A

Neka Bay 

South

Bight

JUN-612 - Eligible

JUN-914 - 

Unevaluated

Yes

04-11A

Neka Bay 

North

Bight

Neeká – Chookaneidi’s slave’s name (Xunaa 

Káawu) 

04-11B Red Cliff 

Island

SIT-643 - 

Unevaluated

If Determined 

Eligible

04-12 Corner 

Bay Road SIT-122 - Eligible Yes

04-13

False 

Island 

Camp

SIT-351 - Eligible

SIT-121 - Eligible

Yes

04-13 Nismeni 

Point

Kaa Ts’akool Noowk’ - Man _______Little 

Fort 

(Sheet’ká Kwáan) 

04-13 Sitkoh 

Bay Road

SIT-514 - 

Unevaluated

If Determined 

Eligible

Ataheen – Creek at the Head (Sheet’ká 

Kwáan, Xutsnoowú Kwáan)

L’ukhéenak’u – Coho Salmon Little Creek 

(Xutsnoowú

Kwáan)

04-13 Ushk Bay 

Head

SIT - 495 - 

Unevaluated

If Determined 

Eligible

Áshgu Tlein Aan – Big Áshgu Village 

(Sheet’ká Kwáan) 

Ata’x aan hitx’I áa yéi téeyin- Used to be a 

smokehouse there (proper name uncertain) 

(Sheet’ká Kwáan) 

04-15A Three Hill 

Island

XMF-073 - 

Unevaluated

XMF-074 - 

Unevaluated

If Determined 

Eligible

L’ilguk – Little Penis; Kanax Aan Gashu – 

Lands Extends

Across It (Sheet’ká Kwáan) 

04-16A Pinta Tsaa X’aayi – Seal Point (Xunaa Káawu) 

Chapter 3 - 154 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Use 

Areas

Large 

Group

Area

AHRS Sites 

Present 

to be evaluated 

or 

Interpreted

Management Plan 

Needed 

Native Place Name and Translation

(Thorton, 2012)

Cove

04-16E George 

Island XMF-043 - Eligible Yes

Kooshnáax’i – Tumbling Water Shelter 

(Xunaa Káawu) 

Wéinaa Té – White Stone (Xunaa Káawu) 

* SUM 022 was determined not eligible in 1986 (Davis), however the eligibility status needs to be revisited, in light of the

age of the determination and the discovery of a prehistoric component. The Forest Service recommends the site as eligible

and when the SHPO concurs, a management plan must be developed before permits are issued.

**Site is a linear feature that starts within one UA and LGA and continues into another LGA

Environmental Consequences 

Direct and Indirect Effects 

Area of Potential Effect

The Area of Potential Effect (APE), as defined in Section 106 of the National Historic Preservation Act, is 

the geographic area or areas in which an undertaking that may directly or indirectly cause alterations in 

the character or use of historic properties, if any such properties exist. For this EIS, the APE includes 

areas used by non-motorized outfitter/guides that originate from the marine shoreline. Motorized 

activities, floatplane landing tours, helicopter tours, and ATV and road-based nature tours that take place 

within the project area are beyond the scope of this analysis. The Shoreline II O/G EIS project area 

generally extends 1⁄2 mile inland from the shoreline of the National Forest managed lands encompassing 

the Juneau, Sitka, Hoonah and Admiralty Ranger Districts of the Tongass National Forest. The project 

areas extends further inland where specific outfitter/guide activities and locations are accessed from the 

shoreline. Additionally, the Cross Admiralty Canoe Trail, extending from east to west across the center of 

Admiralty Island is included in this EIS. 

Areas excluded from the analysis include:

• Pack Creek Zoological Area on Admiralty Island during the summer (peak) season. The other seasons

(spring, fall and winter) are included in this analysis.

• Mitchell, Kanalku and Favorite Bays on Admiralty Island are being considered under a separate

analysis.

• Private lands and other public lands and water outside the jurisdiction of the Forest Service

• The Mud Bay and Eagle River road systems on Kruzof Island are being considered under a separate

analysis.

The Shoreline II O/G EIS project area contains six congressionally designated wilderness areas. The 

Wilderness Act of 1964 prohibits outfitter/guide services, except for those that may be necessary to meet 

the recreational or other purposes of the area. Wilderness Commercial Needs Assessments for each 

wilderness area were completed.

Outfitter/guide use would be authorized by special use permits and may be temporary in nature (less than 

one year) or for multiple years. For outfitter/guides who have demonstrated satisfactory performance, the

authorized officer may issue priority use permits, for up to ten years, in accordance with Forest Service 

Handbook 2709.14. None of the alternatives limit any non-outfitter/guide use by the general public. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 155 - 
Chapter 3—Environmental Consequences

The Shoreline II O/G EIS project area is almost entirely within the high sensitivity zone for the presence 

of archaeological and historical resources. Several factors concerning outfitter/guide recreational 

activities are important due to the implications they have on potential impacts to heritage resources: group 

size, activity type and duration of visit. 

Outfitter/Guide Group Size

The Forest Service has recognized three sizes of outfitter/guide recreation groups: 1) small - up to 

6guided clients; 2) specialty tours of up to 20 clients; and 3) mid-sized tour boats with 20-75 passengers. 

Generally the larger the group size, the higher the potential for impacts to historic properties. However, 

small group sizes can also affect historic resources if they are repetitive over time or of longer duration, 

such as a small group camping on a site for multiple days might have a larger impact than a large group 

walking in an area for an hour once a week.

Recreational Activities 

Common activities included in this analysis include hiking, sightseeing, freshwater fishing, bird watching, 

photography, and camping. With the exception of big game hunting and some sport fishing, 

outfitter/guide recreation is generally non-consumptive. The types of recreation under consideration have 

less potential to disturb heritage sites than other types of ground disturbing activities due to the nature of 

these activities, the short period spent in any one place, and the use of “Leave No Trace” practices. The 

principles of “Leave No Trace” are designed to minimize impacts to the environment, including heritage 

resources. The principles of “Leave No Trace” include:

• Preserve the past: examine, but do not touch, cultural or historic structures and artifacts.

• Leave rocks, plants and other natural objects as you find them.

• Avoid introducing or transporting non-native species.

• Do not build structures, furniture, or dig trenches.

• Travel and camp on durable surfaces; Durable surfaces include established trails and campsites, rock,

gravel, dry grasses or snow.

• Good campsites are found, not made. Altering a site is not necessary.

• Concentrate use on existing trails and campsites.

An analysis of potential effects of outfitters and guide activities to significant cultural resources has only 

been conducted on a limited basis in the past. The actual effects to date and potential effects of future 

permitted outfitter/guides must be determined with selective annual inventory and monitoring of previous 

and proposed outfitter/guide permit locations. 

Permit Stipulations

Outfitter/guide guides must obtain a Special Use Permit that identifies their desired use areas and takes 

into account a variety of potential effects to different resources. Forest Service permit administrators can 

disallow use of an area based on resource concerns including the presence of historic properties. Each 

Special Use Permit includes the Archaeological-Paleontological Discoveries (R10-X106) clause to protect 

heritage resources. The stipulation language states:

Items of historic, prehistoric, or paleontological value are protected under various Federal laws, 

including the Antiquities Act of 1906 (16 U.S.C. 433), the Archaeological Resource Protection Act of 

1979 (16 U.S.C. 47033) as amended, and Federal regulations. If historic, prehistoric, or 

paleontological objects or sites are discovered during activities under this permit, the holder is 

responsible for assuring that those objects or sites are not disturbed during the course of the activities 

of the holder or the holder's clients. The holder must notify the Forest Service of such discovery at 

Chapter 3 - 156 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

the earliest opportunity. Failure to comply with this clause may result in criminal prosecution of the 

holder for violation of a Federal law or regulation. 

If outfitters or guides are found to be deliberately vandalizing or destroying historic properties or looting 

sites they could be subject to criminal and civil penalties as allowed under the Archaeological Resource 

Protection Act (ARPA) as well as potentially having their permits revoked. 

Types of Activities Permitted/Potential for Effect

Camping is the type of permitted activity that potentially has the highest probability of ground 

disturbance due to the length of stay and the range of activities that occur under a permit for this kind of 

activity. For example, campers occupying or frequenting a location where a significant cultural resource is 

located can potentially disturb the existing ground cover exposing the resource, leaving it open to the 

effects of erosion, weathering, and later looting or displacement of components. 

Guided Fishing is an activity that occurs within areas that are defined as within the High Sensitivity Zone 

for the presence of historic sites. Lakes and stream systems containing, or known to have contained, 

anadromous fish runs, including a focus on barrier falls locations in such systems are high sensitivity. 

Additionally, walking along streams and in stream banks can lead to bank erosion resulting in the 

displacement of archaeological material. 

Nature walking, bird watching, hiking and photography are types of activities that have less potential to 

affect historic properties when done in small groups and in dispersed places. However, when done 

repeatedly in the same location and in large groups over time can result in user-created trails leading to 

trampling, erosion and exposure or degradation of significant cultural features. 

Guided Hunting is a type of activity that has little potential to affect historic properties. Hunting is done is 

small groups and over a dispersed area and therefore has less potential to affect historic properties. 

Sightseeing and beachcombing are activities that have potential to affect historic properties when done in 

small groups and in remote locations. When the “sights” are historic debris and artifacts scattered on the 

surface they are attractive for people to pick up, displace or even collect. This type of collection and 

disturbance at historic sites is a type of activity that the Forest Service intends to monitor at known 

historic sites, especially in LGAs. 

Effects Common to all Alternatives 

For all of the alternatives, the potential effects to known significant cultural resources are difficult to 

determine because an evaluation of the effects of outfitter/guide recreation on historic properties has been 

completed on only on a very limited basis in the past. The actual effects to date and potential effects of 

future permitted outfitter/guides must be evaluated in the future with monitoring of outfitter/guide actual 

use. Overall, camping is the activity that seems to have the highest potential for direct effect to significant 

cultural sites through campfires, ground disturbance and displacement of artifacts. Large groups, or small 

groups returning to the same locations frequently, could have an effect if the group creates trails, leading 

to erosion and exposure or degradation of significant cultural sites. Historic sites with above ground 

features are at risk from casual recreational users as they present an attractive place to pick up and 

examine, and even possibly collect, historic artifacts that are scattered on the surface. 

However, ultimately it is the volume of actual use that is the metric that is used to predict effects, the 

higher the use numbers, the higher the potential for effects. For example, those uses in areas designated 

wilderness will have less outfitter/guide allocation under all of the alternatives and no LGAs designated, 

therefore the effect to historic properties is anticipated to be minimal. In fact, the wilderness designation 

actually pushes and concentrates outfitter/guide uses into some areas that are in the vicinity of wilderness 

but not within the wilderness boundary. There are some use areas that will see significant increases in 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 157 - 
Chapter 3—Environmental Consequences

outfitter/guide allocated service days and they are the areas that are anticipated to effects, potentially 

adverse, to historic properties.

The LGAs are also anticipated to have higher actual use numbers and therefore the potential to affect 

historic properties disproportionately. The Forest Service identified 6 LGAs with 7 historic properties 

within the boundary of the LGA. For these LGAs, the Forest Service would develop a Management Plan 

that clearly articulates the manner in which the agency will avoid or minimize effects to these historic 

properties prior to issuing or reissuing special use authorization for outfitter/guide use within these LGAs. 

Each management plan will be developed on a case-by-case basis depending on the resource. In some 

cases, the sites to be protected are historic and in some cases pre-date the historic era. In some instances, 

the resource is related to a broad pattern of our history, such as World War II (National Register Criterion 

A) and in some cases, the site potentially would add to the public’s understanding of Alaska’s prehistory

(National Register Criterion D). The management plan developed could incorporate a range of mitigation

measures, including interpretation, consultation, trail hardening, avoidance, boundary adjustment, data

recovery or other protective measures.

Twenty-four sites are located within LGAs; 19 LGAs have one or more sites within their boundaries. 

Seventeen unevaluated sites within LGAs are therefore managed as eligible, until determined not eligible. 

The determinations of eligibility need to be completed to ensure that they are, in fact, historic properties 

(eligible) and need to be managed as such. If determined eligible, a management plan to ensure the 

protection of these sites needs to be completed to avoid, minimize or avoid effects to these historic 

properties prior to issuing or reissuing special use authorization for outfitter/guide use within these LGAs. 

If the sites are determined not eligible then the Forest Service has no further responsibilities to protect the 

site. 

Alternative 1 - No Action

National Environmental Policy Act (NEPA) requires the study of the “No Action” alternative as a basis 

for comparing the effects of No Action to the action alternatives. The No Action Alternative considered 

for this analysis is the 2004 Shoreline Outfitter/Guide FEIS ROD. Under this alternative, allocation would 

remain the same as the 2004 levels. In the 2004 FEIS/ROD, allocation was measured in “group days” 

where a group of six people on shore in a single day equals one “group day”. 

Alternatives in this analysis consider allocation in measures of service days. A service day is defined as 

one person on National Forest System (NFS) lands for any period of time during one 24 hour period. The 

“No Action” alternative would continue the existing management practices of the outfitter guide special 

uses management program and allocate up to 47,449 service days for outfitter/guide use. Under this 

alternative, there would be no winter season, as that was not part of the 2004 Shoreline Outfitter/Guide 

EIS ROD. If selected, this alternative would use the service day unit of measure rather than the group day 

unit of measure. The additional LGAs would not be added to the inventory of LGA and the Forest Service 

would only have 35 LGAs, as currently described in the 2004 Shoreline FEIS and ROD. 

The “No Action” Alternative would still have the potential to affect historic properties, known or yet 

unknown. This alternative has the least potential to affect historic properties overall as the total number of 

service days for the project area is the least overall. However, this alternative has the lowest number of 

allocated days in only 18 of the 48 use areas. In the remaining 29 use areas the service days allocated, and 

thus the potential effects to historic properties, is higher. If based on numbers of service days only, it is the 

alternative that will have the least potential to affect historic properties in 18 of the use areas. In 6 of the 

use areas, it presents the highest potential to affect historic properties.

Between the years 2010 and 2014, on average only 34 percent of the threshold authorization was used 

(15,966 as compared to the allocation of 47,449). If fully implemented and all available use allowed 

under the No Action Alternative was permitted and used there would be a 197 percent increase in use days 

compared to the current average annual reported use total. In 40 of the use areas demand has not come 

Chapter 3 - 158 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

close to the 2004 Shoreline FEIS and ROD threshold; however in 5 of the use area there has been an 

excess of reported use in at least one of seasons’ use: UA 04-02A (Redoubt Lake), UA 04-04B (Kelp 

Bay), UA04-16C (Idaho Inlet) , UA 04-16E (Port Althorp) and UA 1-05D (Tracy Arm). 

Alternative 2 – Proposed Action

The Forest Service is proposing to allocate up to 80,305 service days of the estimated total visitor 

capacity of 636,448 service days within the project area to outfitter/guide use. These allocations are 

proposed by season and use area. Each allocation was based on factors such as historical outfitter/guide 

use, subsistence opportunities, proximity to communities, potential for resource impacts, and quality 

recreation experiences as prescribed by the Forest Plan and Wilderness Act. 

This alternative represents an increase of 69 percent over the No Action Alternative across the proposed 

Shoreline II O/G EIS project area. This Alternative would have the potential to affect historic properties, 

known or yet unknown. This alternative has more potential to affect historic properties than Alternative 3 

and 4 based on the total number of service days and more potential than the No Action Alternative. 

However, this alternative has the lowest number of allocated days in only one use area, Slocum Inlet, for 

both Alternative 2 and Alternative 3. In 20 of the remaining 48 use areas this alternative allocated the 

second smallest number of outfitter/guide service days. 

Alternative 3—Lower Allocation 

This alternative would allocate 63,940 service days across the four districts for use by outfitter/guides. It 

creates less-crowded opportunities for national forest users by offering lower outfitter/guide allocations 

for use areas in designated wilderness and areas designated remote/semi-remote than the Proposed Action

alternative. It was crafted in response to scoping comments expressing concern about outfitter/guide use 

crowding in areas that historically have had low use. 

While this alternative has fewer service days than the Proposed Action, it is higher across the project area 

than the Alternative 1-No Action. This alternative has the lowest allocation in 29 of the use areas and is 

the same allocation as Alternative 2 in four of the use areas. In the remaining 15 use areas the allocated 

service days in this alternative represent the second smallest number of service days allocated, second 

only to the No Action Alternative. If based on numbers of overall service days only, it is the alternative 

that will have the least potential to affect historic properties in 29 of the use areas. Overall, this alternative 

would be ranked as the one with the next to least potential to affect historic properties, second only to the 

No Action Alternative. In 5 use areas, the allocated days (Alternative 3) are the same of the allocation for 

the Proposed Action (Alternative 2): UA 01-04D (Slocum Inlet), 01-05C (Windham Bay), UA 04-04A 

Rodman Bay, UA04-11A (Port Frederick), UA 04-11B (Freshwater Bay).

Alternative 4—Higher Allocation 

This alternative allocates 130,655 service days to outfitter/guide use. It was calculated by applying a 5 

percent increase to the Proposed Action and compounded annually over a 10-year period. Alternative 4 is 

developed with a specific focus on supporting local and regional economies by recommending increased 

outfitter/guide opportunity for outfitter/guide businesses to operate in the shoreline zone based on 

observed visitor industry trends. 

The Higher Allocation Alternative has the most potential to affect historic properties, known or as yet 

unknown. This alternative has the highest potential to affect historic properties overall as the total number 

of service days is the highest over the project area. Additionally, this alternative has the highest number of 

allocated days in all but 6 (UA 01-02 Haines Area, UA01-04D Slocum Inlet, UA01-05A Taku Harbor, UA

04-08 NE Admiralty, UA04-09A Seymour Canal, UA 04-10A Green Creek) of the 48 use areas. If based

on numbers of service days only, the alternative will have the most potential to affect historic properties in

42 of the use areas. See Table 3-28 below for more information.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 159 - 
Chapter 3—Environmental Consequences

Table 3-28: Allocations by alternative sorted from lowest to =highest for each UA

This Table summarizes the analysis of effects by Alternative in each use area. Column A lists each use 

area. Columns B through F provide numerical data, representative of actual averaged annual reported use 

data (A) and the allocations for Alternatives 1 through 4 (1/ to 4/). Column G provides a listing in order 

by alternative (where “actual” is represented by “A”) from lowest to highest allocation. 

When considered purely based on total numbers by use area, the potential for effect is greatest in the 

alternative represented in Column F, and least in Column B. Alternative 3 offers the least potential for 

effect in 29 use areas, and Alternative 1 represents the lowest potential for effect in 19 use areas. 

Alternative 4 presents the highest potential in 42 use areas and Alternative 1 presents the highest potential 

for effect in 6 use areas. 

Key:

• A= Current Average Annual Use based on 2010-2014 O/G reported data

• 1/= Alt. 1 No Action

• 2/= Alt. 2 Proposed Action

• 3/= Alt. 3

• 4/= Alt. 4

UA Number 

and Name

Ranking – Lowest to Highest Ranking (low 

to high)

01-01

Skagway 

Area 

A=0 3/=1,085 1/=1,357 2/=1,400 4/=2,275 A 3 1 2 4

01-02 Haines

Area A=0 3/=195 2/=245 4/=395 1/=612 A 3 2 4 1

01-03 East

Chilkats A=259 3/=1,035 2/=1,325 1/=1,513 4/=2,150 A 3 2 1 4

01-04A

Berners Bay A=55 3/=480 2/=620 1/=845 4/=1,000 A 3 2 1 4

01-04B N.

Juneau Coast A=97 3/=675 1/=794 2/=865 4/=1,405 A 3 1 2 4

01-04C Taku

Inlet A=9 3/=1,085 1/=1,306 2/=1,380 4/=2,255 A 3 1 2 4

01-04D

Slocum Inlet A=138 2/=455 3/=455 4/=735 1/=845 A 2/3 4 1

01-05A Taku

Harbor A=97 3/=370 2/=475 4/=765 1/=794 A 3 2 4 1

01-05B Port

Snettisham A=853 1/=2,404 3/=3,050 2/=4,010 4/=6,530 A 1 3 2 4

01-05C

Windham Bay A=579 1/=2,299 2/=2,745 3/=2,745 4/=4,470 A 1 2/3 4

01-05D Tracy

Arm A=106 3/=265 1/=284 2/=345 4/=560 A 3 1 2 4

01-05E Fords

Terror A=157 3/=205 2/=270 1/=335 4/=430 A 3 2 1 4

01-05F

Endicott Arm A=391 3/=590 1/=663 2/=775 4/=1,270 A 3 1 2 4

04-01A Gut

Bay, Baranof A=321 3/=455 1/=469 2/=605 4/=975 A 3 1 2 4

Chapter 3 - 160 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

UA Number 

and Name

Ranking – Lowest to Highest Ranking (low 

to high)

04-01B Port

Armstrong A=167 1/=681 3/=840 2/=1,075 4/=1,740 A 1 3 2 4

04-01C

Nelson Bay A=7 1/=380 3/=505 2/=655 4/=1,055 A 1 3 2 4

04-02A

Redoubt Lake 1/=160 A=278 3/=1,670 2/=2,185 4/=3,550 1 A 3 2 4

04-02B Whale

Bay A=256 3/=615 2/=810 1/=866 4/=1,330 A 3 2 1 4

04-02C

Necker

Islands

A=75 1/=163 3/=1,635 2/=2,135 4/=3,460 A 1 3 2 4

04-02D SW

Baranof A=28 1/=680 3/=1,020 2/=1,315 4/=2,135 A 1 3 2 4

04-03 Sitka

Area A=1,149 1/=4,683 3/=7,550 2/=9,885 4/=16,105 A 1 3 2 4

04-04A

Rodman Bay A=429 1/=1,511 2/=2,990 3/=2,990 4/=4,865 A 1 2/3 4

04-04B Kelp

Bay 1/=1,521 A=3,070 3/=5,525 2/=7,305 4/=11,895 1 A 3 2 4

04-04C

Baranof

Warm Springs

A=114 3/=255 1/=297 2/=330 4/=530 A 3 1 2 4

04-05A SE

Admiralty A=308 3/=585 2/=775 1/=912 4/=1,255 A 3 2 1 4

04-06A Pybus

Bay A=652 3/=685 1/=801 2/=910 4/=1,485 A 3 1 2 4

04-06B Eliza

Harbor A=135 3/=435 1/=534 2/=575 4/=940 A 3 1 2 4

04-07A

Gambier Bay A=123 3/=355 2/=465 1/=551 4/=745 A 3 2 1 4

04-07B

CrossAdmiralty 

Canoe Route

A=92 3/=520 2/=685 1/=689 4/=1,110 A 3 2 1 4

04-08 NE

Admiralty A=32 3/-435 2/=575 4/=935 1/=1,419 A 3 2 4 1

04-09A

Seymour

Canal

A=52 3/=460 2/=610 4/=985 1/=1,567 A 3 2 4 1

04-09B Pack

Creek

Zoological 

Area3

1/=0 A=24 3/=220 2/=290 4/=465 1 A 3 2 4

04-10A

Greens Creek A=228 3/=335 2/=440 4/=720 1/=827 A 3 2 4 1

04-10B NW

Admiralty A=78 3/=610 2/=800 1/=1,027 4/=1,300 A 3 2 1 4

3 Pack Creek Zoological Area allocations reflect only fall and spring allocations 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 161 - 
Chapter 3—Environmental Consequences

UA Number 

and Name

Ranking – Lowest to Highest Ranking (low 

to high)

04-11A Port

Frederick A=127 1/=1,257 2/=1,630 3/=1,630 4/=2,650 A 1 2/3 4

04-11B

Freshwater 

Bay 

A=374 1/=1,362 2/=3,290 3/=3,290 4/=5,370 A 1 2/3 4

04-12

Tenakee Inlet A=188 3/=1,115 2/=1,415 1/=1,450 4/=2,290 A 3 2 1 4

04-13 Peril

Strait A=865 1/=1,934 3/=4,565 2/=6,005 4/=9,775 A 1 3 2 4

04-14 Slocum

Arm A=91 3/=400 2/=535 1/=666 4/=875 A 3 2 1 4

04-15A

Lisianski A=29 1/=857 3/=1,475 2/=1,910 4/=3,105 A 1 3 2 4

04-15B West

Yakobi Island A=9 3/=365 1/=454 2/=475 4/=770 A 3 1 2 4

04-15C Stag

Bay A=9 3/=125 1/=152 2/=160 4/=265 A 3 1 2 4

04-15D

Portlock

Harbor

A=60 3/=350 1/=352 2/=460 4/=760 A 3 1 2 4

04-16A Point

Adolphus A=473 1/=1,294 3/=1,690 2/=2,220 4/=3,625 A 1 3 2 4

04-16B North

Chichagof A=236 3/=1,085 1/=1,294 2/=1,415 4/=2,295 A 3 1 2 4

04-16C Idaho

Inlet 1/=1,294 A=1,340 3/=3,115 2/=4,110 4/=6,700 1 A 3 2 4

04-16D PLI

Wilderness A=83 3/=300 2/=395 1/=471 4/=645 A 3 2 1 4

04-16E Port

Althorp A=823 1/=1,117 3/=4,500 2/=5,960 4/=9,710 A 1 3 2 4

Totals A=15,966 1/=47,449 3/=63,940 2/=80,305 4/=130,655 A 1 2 3 4

Cumulative Effects 

Significant cultural sites have the potential to be impacted from forces beyond those of outfitter/guides, 

through natural processes such as weathering, erosion and natural decay and through recreation by 

unguided visitors, or a combination of natural and human caused effects. Increased visitation by 

outfitter/guides could add to the cumulative effects on extant significant cultural resources. This increased 

visitation could lead to degradation of the site by erosion, theft or vandalism. Archaeological inventory 

and monitoring of outfitter/guide activities near known historic properties and in areas with high 

sensitivity for such sites would help detect any potential damage to those sites, which could lead to 

mitigation measures, depending on the level of damage.

There are no expected cumulative effects from other projects near the LGAs as they are strategically 

placed away from other forest projects, especially those of industrial projects such as large working 

mines, airports or hydroelectric projects. Other recreation projects, such as trail improvements and 

recreation cabins in the vicinity will not result in cumulative effects from outfitter/guide recreation. Trails 

in the area could potentially be used by outfitter/guides. There could be a potential for cumulative effects 

Chapter 3 - 162 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

from several recent decisions or analysis for project areas where outfitter/guide recreation is also either 

being considered or permitted. These areas include:

• Pack Creek Zoological Area on Admiralty Island during the summer (peak) season. The other seasons

(spring, fall and winter) are included in this analysis.

• Mitchell, Kanalku and Favorite Bays on Admiralty Island are being considered under a separate

analysis, the Angoon-Mitchell Bay Ecotourism EA.

• The Mud Bay and Eagle River road systems on Kruzof Island are being considered under a separate

analysis.

In each of these 3 cases, as they are being considered separately, the result might be an increase of overall 

numbers of outfitter/guide recreation in the area, potentially resulting in effects to documented or as-yet 

undocumented historic or archaeological sites in the area. The Angoon-Mitchell Bay Ecotourism EA

proposes to permit small guided groups in Mitchell, Favorite and Kanalku Bay. It is within the 

Kootznoowoo Wilderness, proposing generally non-ground disturbing activities such as guided hiking, 

fresh water angling, and bear viewing. However, it might also include permits for camping that has more 

potential for ground disturbance; with the wilderness stipulations of group size of 12 of less, there is 

lower potential to affect historic properties. The area of cumulative impact could potentially be at the 

western end of the Cross Admiralty Canoe Trail as this area is permitted under the Ecotourism Proposal as 

well as being permitted under this analysis resulting in higher allocations and therefore more potential 

effects, possibly adverse effects in an area of high sensitivity for the presence of historic resources. 

The Pack Creek Zoological Area is also being allocated service days for outfitter/guide use under this 

analysis in three seasons while its use during the summer season was allocated in a previous decision, 

potentially resulting in cumulative effects to historic properties. However, as the area is wholly within the 

Kootzoonoo Wilderness Area the numbers are not expected to be large, and summer visitors to the area 

are very restricted in the area that they can use and therefore the impacts are not expected to be adverse. 

The Mud Bay and Eagle River road system allocation for outfitter/guide use of Kruzof Island were 

considered under a separate decision document, potentially resulting in cumulative higher use numbers. 

The Sitka Tribe considers Kruzof Island a sacred place with Mount Edgecumbe volcano being a sacred 

site. The Tribe has reaffirmed, and the Forest Service acknowledges, the cultural reverence of this Island 

to the Native people of Sitka. Therefore, upon application for any use on Kruzof Island the Forest Service 

shall consult with the Sitka Tribe and consider their comments and concerns prior to issuing special use 

permits. 

There has been a limited amount of archaeological investigation of permit areas. No known cumulative 

effects on significant cultural resources from outfitter/guide activities have been documented. Some of the 

outfitter/guide activities covered under this analysis have low potential to impact significant cultural 

resources, such as nature walks or guided hiking. 

Based on the lack of permitted ground-disturbing activities, combined with periodic monitoring of 

outfitter/guide activities, and adding potential mitigation measures, administrative oversight, and 

enforcement of regulations, it is expected that proposed activities should result in minimal effects on 

extant significant cultural resources. If the aforementioned provisions (Leave No Trace, Practices, Special 

use Permit Clauses, Development of Management Plans, monitoring, and so forth) are adhered to, the 

cumulative effects for any of the alternatives are not likely to result in adverse impacts to the significant 

cultural resources. Inventory and monitoring will confirm or refute this supposition. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 163 - 
Chapter 3—Environmental Consequences

Wildlife 

Introduction

The Forest Plan incorporates laws, regulations and Forest Service policies to provide specific information 

on how management indicator species (MIS), threatened, endangered and sensitive species (TES), and 

other wildlife and fish species will be managed on NFS lands. Forest-wide desired conditions and goals 

are included in Chapter 2 of the Forest Plan. The Forest is organized into LUDs for management 

purposes. Each LUD has specific goals, objectives, desired conditions, and management prescriptions that 

are discussed in Chapter 3 of the Forest Plan. Forest Plan standards and guidelines in Chapter 4 (USDA 

Forest Service 2008a) provide direction for species and habitat management. The Forest Plan Final 

Environmental Impact Statement (FEIS) provides in-depth information on MIS and TES species (USDA 

Forest Service 2008b), migratory birds, and other species of concern (USDA Forest Service 2008b). 

Analysis Methods 

This effects analysis is based on professional judgment using quantitative and qualitative information 

provided by Forest Service and other agency staff, relevant references and technical literature citations, 

and subject matter experts. This analysis uses the terminology defined below to describe the intensity of 

the direct, indirect and cumulative effects of the Proposed Action on MIS, migratory birds, and other 

species and habitats in the Analysis Area. 

Direct and indirect effects can occur as a result of project activities and their connected actions. A direct 

effect is an effect caused by an action that occurs in the same time and place as the action. An indirect 

effect is caused by an action but is later in time or farther removed in distance, but is still reasonably 

foreseeable. Under NEPA, cumulative effects represent the impact on the environment, which results from 

the incremental impact of the action when added to other past, present, and reasonably foreseeable future 

actions regardless of what agency (Federal or non-Federal) or person undertakes such other actions. 

Mitigation measures may also be employed where applicable to offset or minimize potential adverse 

impacts. 

Collection of population trend information for MIS specific to the Shoreline O/G EIS is cost prohibitive. 

Peer reviewed, published literature from Southeast Alaska is limited for some species. Much of the 

available information for Southeast Alaska is USDA Forest Service general technical reports and 

monitoring reports, Alaska Department of Fish and Game (ADF&G) internal publications and harvest 

reports, or masters/doctorate dissertations. Since data is lacking for Southeast Alaska, the Forest Service

used information from other areas to support conclusions. Wildlife disturbance from recreational activities 

is widely recognized, but few studies have quantified these effects. Key reference citations are included 

throughout this report; many other research publications provided basic information.

Analysis Area

The wildlife resource Analysis Area for this project includes all NFS lands on the four districts and the 

immediately adjacent marine environment that would be used by permitted outfitter/guides to access sites

(Figure 1-1, Chapter 1). The cumulative effects area is the same boundary, but includes non-NFS lands. 

These areas are appropriate for wildlife analysis because some species included in this analysis use the 

marine environment while others may be found from saltwater to alpine and incorporates a watershed 

basis for analysis. Most of the Juneau Ranger District (JRD) is part of ADF&G Game Management Unit

(GMU) 1C, but it also includes lands in GMU 1D and 4. The Admiralty National Monument, Hoonah and 

Sitka Ranger Districts are in GMU 4. 

Chapter 3 - 164 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

There are 48 use areas in the project/Analysis Area (Table 1-1). Additionally, within the project area the 

Forest Service has identified 41 LGAs, where large guided groups (21-75 people at one time) can come 

ashore (Table B-1). Specific information on these areas is included in the use area and LGA cards in 

Appendices A and B of the Shoreline II O/G EIS. 

Assumptions 

Recreation use seasons as defined for this project generally do not correspond with hunting seasons or 

wildlife breeding, foraging, migrating, or wintering lifecycles. Therefore, effects are assumed to be 

correlated to the total allocated service days. However, in cases where a specific season or use area seems 

relevant, more focused analysis of service days is used. 

Impacts from outfitter/guide activities were based on maximum use of the allocation. Non-guided uses 

were addressed subjectively due to the lack of quantifiable information on non-guided use. Non-guided 

use on NFS lands is currently not quantified or easily quantifiable. 

For most species and activities, scientific literature on disturbance thresholds is lacking. Although some 

activities, such as guided hunting and fishing, would likely not occur in large group sizes, this project 

does not set outfitter-guide allocations by activity. 

Due to known disturbance factors, Leave No Trace Principles for wildlife include “Avoid wildlife during 

sensitive times: mating, nesting, raising young, or winter.” Given the variety of wildlife species in the 

Analysis Area, avoidance would have to occur during the entire recreational season. Therefore, it is 

unlikely that Leave No Trace principles for wildlife would be implemented to the level that would avoid 

all disturbances. Design features and Forest Plan standards and guidelines buffer requirements should 

lessen, but not eliminate impacts.

Level of Effects 

Numerous studies have identified a variety of factors that influence both the vulnerability of wildlife and 

the frequency of wildlife response to human disturbance. Although disturbance has been heavily studied, 

research on thresholds is lacking; wildlife responses are relatively unpredictable and may vary even 

within a given species. Therefore, the assumption was made that risk of disturbance effects to species is 

correlated to the amount of allocated use. For comparative purposes alternatives were ranked by overall 

allocated use and each use area was ranked for overall allocated use by alternative. When appropriate, as 

described in the species discussions, rankings for comparisons of specific seasons or groups of use areas 

were used. 

In addition, subjective general criteria were used to assess the intensity or level of influence of the effects. 

The levels of influence are defined below. 

Negligible: Individuals would not be affected, or the action would affect an individual but the change 

would be so small that it would not be of any measurable or perceptible consequence to the individuals or 

populations. Negligible effect would equate with a "no effect" determination for threatened and 

endangered species and the “no impact” determination for sensitive species. 

Minor: Individuals would be affected but the change would be small. Impacts would not be expected to 

have any long-term effects on species or their habitats, or the natural processes sustaining them. 

Occasional responses to disturbance by some individuals could be expected, but without interference to 

reproduction, or other factors affecting population levels. Minor effect would equate with a “not likely to 

adversely affect" determination for threatened and endangered species and the "may impact individuals 

but not likely to cause a trend to federal listing or a loss of viability" determination for sensitive species. 

Moderate: Individuals would be noticeably affected. The effect could have some long-term consequence 

to individuals or habitat. Breeding animals of concern are present; animals are present during particularly 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 165 - 
Chapter 3—Environmental Consequences

vulnerable life-stages, such as migration or juvenile states; or interference with activities necessary for 

survival can be expected on an occasional basis. Frequent response to disturbance by some individuals 

could be expected, with some negative impacts to feeding, reproduction, or other factors affecting shortterm population levels. Moderate effect can equate with a “likely to adversely affect” determination for 

threatened and endangered species and the "may impact individuals but not likely to cause a trend to 

federal listing or a loss of viability" determination for sensitive species. 

Major: Populations would be affected with a long-term, vital consequence to the individuals, populations, 

or habitat. Impacts on species, their habitats, or the natural processes sustaining them would be detectable. 

Population numbers, population structure, genetic variability, and other demographic factors for species 

might have large, short-term declines with long-term population numbers significantly depressed. 

Frequent responses to disturbance by some individuals would be expected, with negative impacts to 

feeding, reproduction, or other factors resulting in a long-term decrease in population levels. Major effect 

would equate with a “likely to adversely affect” determination for threatened and endangered species and 

the "likely to result in a trend to federal listing or a loss of viability" determination for sensitive species. 

Affected Environment

The Analysis Area contains most all of the habitats found in southeast Alaska from large-tree productive 

old growth forest to alpine and glaciers. However, the project will generally not physically alter habitat. 

Primary effects are expected to be from various types of disturbance. Therefore, species discussions will 

not dwell on habitat attributes except where habitats relate to anticipated populations trends, disturbance, 

or potential harvest of wildlife species. The Forest Plan FEIS (USDA Forest Service 2008b) and Schoen 

and Dovichin (2007) provide large scale overviews of the habitats and habitat trends on the northern 

Tongass National Forest. 

Management Indicator Species 

Management indicator species (MIS) are vertebrate or invertebrate species whose response to land 

management activities can be used to predict the likely response of other species with similar habitat 

requirements. FSM 2621.3 requires the effects of a proposed action to MIS be assessed and that the Forest 

Plan requirements, goals and objectives for these species are met at the project level. 

Thirteen wildlife MIS were selected for the Tongass (USDA Forest Service 2008b). All are associated 

with productive old-growth forest (POG). Six of the MIS also specifically use riparian habitats and 5 of 

the species use estuarine habitats.

MIS Selected for analysis 

The following Forest Plan MIS species were selected for the Shoreline II O/G EIS Plan analysis because 

they are species of interest to outfitter/guides and their clientele and may be affected by human 

disturbance during critical life stages or are the focus of wildlife viewing and guided hunting. 

Alexander Archipelago Wolf

The Alexander Archipelago wolf (Canis lupus ligoni) was selected as a Tongass National Forest (TNF) 

MIS because of population viability concerns in some areas of the TNF. This species inhabits the 

mainland and the larger islands south of Frederick Sound (MacDonald and Cook 2007) where its densities 

are closely tied to the population levels of their prey (primarily Sitka black-tailed deer). Wolves only 

occur on the JRD within the Analysis Area. Based on trapper reports, ADF&G considers wolves common 

and increasing in GMU 1C (Scott 2012a) and stable in GMU1D (Sell 2012a). 

Important components of wolf management include maintaining core area habitats with low road density, 

maintaining wolf harvest within sustainable limits through regulations, and providing adequate deer 

Chapter 3 - 166 - Shoreline II Outfitter/Guide DEIS
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habitat to support an abundant and stable deer population (USDA FS 2008b). Human access on roads may 

result in wolf mortality by both legal and illegal harvest (USDA FS 2008b). Changes in road access and 

deer habitat provide general measures of effects. The Forest Plan provides standards and guidelines to 

maintain sustainable wolf populations, protect den sites, provide prey habitat and manage road access 

(USDA FS 2008a). 

Wolf hunting is an authorized outfitter/guide activity on JRD. Guided wolf hunting generally occurs in 

combination with or incidental to, hunts for other species, such as black bear. Few people have 

historically hunted wolves with a guide. From 2010 through 2014 guides reported clients spent forty 

service days wolf hunting, all in combination with black bear hunting. Guides do not report the number of 

animals harvested to the Forest Service. Wolf harvest is reported to ADF&G but the harvest report does 

not identify whether the hunter was guided or not. Thus, the number of wolves harvested by clients of 

permitted guides is not available, but based on the low effort, guided harvest is expected to be a small 

percentage of the overall harvest. In GMU 1C, 21 wolves were reported harvested in 2010 but the average 

harvest from 1996-2010 was 9.5 wolves (Scott 2012a). In GMU 1D, 11 wolves were reported harvested in 

2010 with the average harvest from 1996-2010 of 5.4 wolves (Sell 2012a). 

Bald Eagle

The bald eagle (Haliaeetus leucocephalus) was selected as a MIS for this EIS because of its use of coastal 

areas for foraging and nesting. Eagles breeding in coastal Alaska remain in the vicinity of their nest sites 

throughout the year; immature eagles wander more widely in search of food (US DI FWS 2009). Most 

bald eagles nest in old-growth trees within 328 ft./100 m of saltwater shorelines. Bald eagles in Alaska 

may begin attending to nest building in preparation for nesting in early February (US DI FWS 2007). Egg 

laying occurs between April and June with a peak in late April and early May (US DI FWS 2007). 

Hatching and rearing young occurs starting in mid-May through mid-September while fledging occurs in 

August through mid-October (US DI FWS 2007). Young birds stay in the vicinity of the nest for about 6 

weeks after fledging because they are dependent on their parents for food (US DI FWS 2007). 

Because they forage primarily on fish, key habitats include riparian and shoreline areas. Changes in POG 

forest especially along the shoreline provide a general measure of effects. Forest Plan standards and 

guidelines require the protection of beach fringe habitat and managing bald eagle habitat in accordance 

with an Interagency Agreement between the Forest Service and US DI FWS (USDA Forest Service

2008a). Based on agreement with the US DI FWS the TNF manages bald eagle habitat consistent with the 

National Bald Eagle Management Guidelines (US DI FWS 2007). This plan provides recommendations 

for avoiding habitat alterations and disturbance (including repeated human activity) within 330-660 ft.

(depending on the activity type) of bald eagles nests and that aircraft avoid flying within 1000 ft. of nests 

during the breeding season. For non-motorized recreation (e.g. hiking, camping, fishing, hunting, 

birdwatching, canoeing, kayaking), and motorized watercraft, the Plan recommends a 330 ft. buffer 

during the breeding season. Not all bald eagles react to disturbance in the same way. This variability may 

be related to differences in visibility, duration of disturbance, noise levels, and tolerance or habituation to 

human activities (US DI FWS 2007). 

There are 4,529 known historic bald eagle nests in the Analysis Area (US DI FWS 2014), although data is 

lacking for much of Baranof Island and some other areas. Nest maps for bald eagles in Southeast Alaska 

are maintained by US DI FWS and are infrequently updated, so good sources of active nest locations are 

not available. These nests are evenly distributed along the coastal shorelines and a GIS based analysis 

indicates that an estimated 91 percent occur within the beach and estuary buffer. No project level surveys 

were completed. 

Black Bear

Black bears (Ursus americanus) were chosen as a MIS because of their importance for hunting and for 

recreation and tourism. They are present throughout the Southeast Alaska mainland and on the islands 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 167 - 
Chapter 3—Environmental Consequences

south of Frederick Sound. Black bears only occur on the JRD within the Analysis Area. Population 

estimates are not available for black bears in GMU 1C and 1D. ADF&G estimates that the GMU 1C 

population trend is stable (Scott 2011) but did not project a trend for GMU 1D (Crupi 2011).

Black bears will use a variety of habitats from sea level to the alpine but appear to prefer estuarine, 

riparian, and forested coastal habitats (USDA FS 2008b). Black bears follow a general yearly cycle. After 

emerging from their dens in April and May, they head to coastal areas to forage on early green vegetation. 

They follow the greening vegetation up in elevation as snow melts. They return to lower elevations during 

summer to forage on salmon and berries before returning to their dens around October and November. 

Human activities in bear habitat can disturb or displace bears (Kasworm and Manley 1990, Smith et al. 

2012, Costello et al. 2013). Human access on roads may result in mortality by both legal and illegal 

harvest. Remote setting nature tours and guided fishing often occur in tidal and riparian areas where the 

possibility of a bear encounter may be higher. Camping, hiking, and photography can also be stressful to 

bears. Improperly stored foods and trash can increase the likelihood of bear-human encounters that can 

lead to injuries and mortalities for both humans and bears, although no defense of life and property kills 

(DLP) related to outfitter/guide activities have been reported. The Forest Plan provides standards and 

guidelines to minimize conflict with bears and maintain important bear habitat (USDA Forest Service

2008a, p. 4-92). 

The GMU 1C and 1D annual harvest has risen steadily over the past 40 years. Current annual harvest is 

around 94 bears in GMU 1C (Scott 2011) and 31 bears in GMU 1D (Crupi 2011). In both GMUs 1C and 

1D, around 80 percent of the harvest occurs in the spring season, particularly in May. This is related to 

hunters’ interest in taking a bear with a prime pelt. Bear pelts are prime if the animal is taken shortly after 

den emergence. Black bears emerge in the largest numbers in early to mid-May. Harvest in GMU 1C 

tends to be concentrated in a few areas such as the Chilkat Range and the mainland from Port Snettisham 

south. In GMU 1D most bears are taken on non-national forest lands where roads provide easy access. 

Boats are consistently the dominant mode of transportation for successful black bear hunters in GMU 1C. 

During spring, black bears can be found on nearly any uninhabited beach as they forage and boats provide 

the easiest, most efficient access (Scott 2011). In GMU 1D most hunters use highway vehicles (Crupi 

2011). 

Resident hunters historically accounted for 60-70% of the annual harvest in GMU 1C, but more recently 

non-resident hunters have taken an increasing percentage. There is no guide requirement for non-resident 

black bear hunters but approximately half of nonresidents hunt with a guide in GMU 1C (Scott 2011). In 

GMU 1D non-residents take about 20% of the harvest (Crupi 2011). The area between Port Snettisham 

and Cape Fanshaw in GMU 1C is used by nonresidents on combination hunts for brown bear and black 

bear. A typical hunt begins in GMU 4 for brown bears and then finishes in this area for black bears (Scott 

2011). 

Ten guiding businesses are authorized under special use permits to conduct up to 117 guided black bear 

hunts in the Analysis Area. From 2010 through 2014 guides provided an average of 53 hunts per year for 

black bears in the Analysis Area.

Brown Bear

Brown bears (Ursus arctos) were chosen as an MIS for this EIS because of their importance for hunting, 

recreation, and tourism. Brown bears occur throughout the southeast Alaska mainland and most of the 

islands north of Frederick Sound (MacDonald and Cook 2007). They occur throughout the Analysis Area

(ADFG GMUs 1C, 1D, and 4). ADF&G believes the brown bear population across all of GMU 1 is 

stable. However, brown bear observations have increased from the Taku River south to Endicott Arm in 

GMU 1C (Sell 2013). The GMU 4 brown bear population is genetically distinct from the mainland 

population (Mooney 2013a). In 1998, ADF&G estimated the population of GMU 4 brown bears to be 

4,155 bears. This estimate has not been updated, although more recent research in specific watersheds on 

Chapter 3 - 168 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

northeast Chichagof Island suggest the population in those areas increased between 1991 and 2004. The 

GMU 4 brown bear population is believed to be stable (Mooney 2013a). 

Brown bears are habitat generalists and use a variety of habitats from sea level to the alpine. Bears 

frequent the sedge and grass estuaries and beaches during the spring to forage on the first green 

vegetation as they emerge from their dens. Visibility along the beach makes them accessible for wildlife 

viewing and harvest. The late-summer season has been identified as the most critical or limiting period 

for brown bears when they must build up energy reserves that are adequate to survive the winter and 

successfully reproduce. During this season, many brown bears concentrate along low elevation valley 

bottoms and salmon streams, with most use occurring within 500 feet of streams, where their efforts focus 

on consuming large quantities of fish. Cover for visual obscurity, provided by riparian buffers, is 

important for minimizing interactions among bears and between humans and bears. 

Human activities in bear habitat can disturb or displace bears. Remote setting nature tours and guided 

fishing often occur in tidal and riparian areas where the possibility of a bear encounter may be higher. 

Camping, hiking, and photography can also be stressful to bears (Warner 1987). Improperly stored foods 

and trash can increase the likelihood of bear-human encounters that can lead to injuries and mortalities for 

both humans and bears, although no defense of life and property kills (DLP) related to outfitter/guide 

activities have been reported. The Forest Plan provides standards and guidelines to minimize conflict with 

bears and maintain important bear habitat (USDA Forest Service 2008a, p. 4-92). 

For regulatory years 1998-2011 brown bear harvest in GMU 1C averaged five bears per year and in GMU 

1D averaged 14 bears per year (Sell 2013). GMU 4 brown bear harvest averaged 151 for regulatory years 

2007-2011 (Mooney 2013a). Approximately 69% of the brown bears harvested in GMU 4 are taken by 

nonresidents (Mooney 2013a) and 58% of the harvest in GMU 1 is by nonresidents (Sell 2013). 

Nonresidents are required to be accompanied in the field by an Alaska-licensed guide or resident relative 

within the second degree of kindred. Spring seasons produced a larger harvest and greater hunting 

pressure. Generally speaking, hunters prefer to hunt the spring season because bears are easier to locate 

and they may have longer hair than in the fall, making for a better trophy hide. Most spring harvest occurs 

in May. The greatest number of bears is available to hunters late in the spring season because nearly all 

bears have left their dens to seek food, and breeding season approaches. Most fall harvest occurs in 

September. Bear hunters in GMUs 1 and 4 used boats as the most common form of transportation. Similar 

to black bear, most brown bear hunting occurs in the Shoreline II Outfitter/Guide EIS project area, except 

in GMU 1D (Sell 2013, Mooney 2013a).

Five areas in GMU 4 are closed to bear hunting, in part, to enhance viewing opportunities. There are no 

similar closures in GMUs 1C and 1D. The Bear Cove Closed Area is eight miles southeast of Sitka on the 

west side of Baranof Island. The Port Althorp Closed Area is on northern Chichagof Island near Elfin 

Cove. The Seymour Canal Closed Area is on northeastern Admiralty Island and encompasses the Stan 

Price State Wildlife Sanctuary and the Pack Creek Zoological Area. The Pack Creek Brown Bear Viewing 

Area is managed cooperatively by the Forest Service and ADF&G as a bear watching area. The Salt Lake 

and Mitchell Bay Closed Areas are contiguous and are located near Angoon along Kootzhahoo Inlet, 

Favorite, Kanalku, and Mitchell Bays and Salt Lake on southwest Admiralty Island. The Salt Lake and 

Mitchell Bay Closed Areas are not within the Shoreline II O/G EIS project area and will be analyzed in a 

separate outfitter/guide analysis. However, they are within the Analysis Area. Some tour operators take 

visitors to other GMU 4 locales for bear watching (such as Kalinin Bay on Kruzof Island and Lake Eva 

on northeast Baranof Island, and Pavlof Bay on Northeast Chichagof Island) (Mooney 2013a).

The Forest Service manages bear hunting outfitter/guides such that guide and harvest numbers are 

generally aligned with recommendations in the Unit 4 Brown Bear Management Strategy (ABOG 2000). 

The BBMS is a comprehensive management strategy produced by a citizens and agency advisory team 

for the Alaska Board of Game. This strategy included specific recommendations to the Forest Service

with regards to GMU 4 bear hunting guides and hunts: 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 169 - 
Chapter 3—Environmental Consequences

• Maintain the current moratorium on new hunting guides in GMU 4 until the outfitter/guide analysis

for the northern Tongass National Forest is completed (note: this recommendation applied to the 2004

Shoreline Outfitter/Guide EIS).

• Cap the number of guides at the current number (approximately 38); allow the number to decrease by

attrition to 20 hunting guides’ maximum in GMU 4 over the long term.

• Allocate outfitter/guide use on a “client/hunt,” not a “service-days,” basis.

• Maintain essentially the same number of nonresident hunters (guided and next-of-kin) as the current

annual average (148 compared to a current level of 147) with some redistribution of effort among the

GUAs and an adjustment to allow for next-of-kin hunting effort in some areas.

• Allocate guided hunts to the spring and fall seasons based approximately on ADFG’s data of the

historical percentage of use during those seasons.

In addition the advisory team had concerns about the GMU 4 restrictions on brown bear hunting guides 

and hunts resulting in a “spillover” effect which would cause increased hunting pressure and overharvest 

in GMU 1. To address this problem the team recommended that the Forest Service institute a moratorium 

on issuing additional permits to brown bear guides in GMU 1. 

The Forest Service has not instituted a moratorium on new bear hunting guides in GMU 4 or GMU 1. 

However, when a guide sells their business to a new guide, the Forest Service retains 1/3 of the hunts. 

Thus, Forest Service management has focused on the number of hunts more than the number of guides. In 

GMU 1, the Forest Service is not issuing new permits until after they issue a prospectus. There is no 

current timeline for the development of this prospectus (J. Berger, personal communication). In the late 

1990s, when the BBMS was being prepared, the number of guides registered in GMU 4 had risen from 9 

in 1988 to 36 in 1999 (Mooney, personal communication). In 2015, 17 guiding businesses (20 total 

guides) are authorized to conduct up to 135 guided brown bear hunts in the Analysis Area. Some of these 

hunts may be used in either GMU 1C or GMU 4. Forest Service actual use data for Unit 4 indicates that, 

in 2014, 125 hunts were used with a five year average of 130. In the late 1990s, the historical average 

number of guided hunts in GMU 4 was 147 per year (ABOG 2000). Table 3-29 compares actual numbers 

of GMU 4 permitted guided hunts to the BBMS recommendations by GUA for 2010-2014. Note, some 

hunts were conducted in more than one GUA and as such, they are counted in each GUA that the hunt 

occurred. For example, one client may have started a hunt in 04-01 and moved to 04-04 part way through 

the hunt. This one hunt would be counted as a hunt in both 04-01 and 04-04 and inflates the total number 

of hunts shown in Table 3-29 compared to the actual number of hunts shown above. The Forest Service

allocates outfitter/guide use on a hunt basis and for management purposes estimates 10 service days per 

hunt. Currently, guided hunts are not allocated between spring and fall hunts based on ADF&G’s data of 

the historical percentage of use during those seasons.

Table 3-29. GMU 4 Brown bear guided hunts for 2010-2014 compared to the Brown Bear Management 

Strategy recommendations (ADF&G 2000)

Group 

Use Area

Total 

Fall 

Actual 

Use

Total Spring 

Actual Use

Avg Fall 

Actual Use

Avg Spring 

Actual Use

Yearly 

Avg 

Actual 

Use

Fall 

Percent

of Total

Spring

Percent

of Total

BBMS 

Guided 

Hunters

BBMS 

Actual 

(I-F)

04-01 22 34 4.4 6.8 11.2 39 61 10 (1.2)

04-02 22 24 4.4 4.8 9.2 48 52 7 (2.2)

04-03 0 7 0 1.4 1.4 0 100 4 3.6

04-04 22 44 4.4 8.8 13.2 33 67 11 (2.2)

04-05 32 64 6.4 12.8 19.2 33 67 15 (4.2)

04-06 17 68 3.4 13.6 17 20 80 16 (1.0)

Chapter 3 - 170 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Group 

Use Area

Total 

Fall 

Actual 

Use

Total Spring 

Actual Use

Avg Fall 

Actual Use

Avg Spring 

Actual Use

Yearly 

Avg 

Actual 

Use

Fall 

Percent

of Total

Spring

Percent

of Total

BBMS 

Guided 

Hunters

BBMS 

Actual 

(I-F)

04-07 0 37 0 7.4 7.4 0 100 5 (2.4)

04-08 0 3 0 0.6 0.6 0 100 1 0.4

04-09 0 18 0 3.6 3.6 0 100 6 2.4

04-10 9 32 1.8 6.4 8.2 22 78 9 0.8

04-11 7 58 1.4 11.6 13 11 89 9 (4.0)

04-12 22 61 4.4 12.2 16.6 27 73 14 (2.6)

04-13 28 74 5.6 14.8 20.4 27 73 16 (4.4)

04-14 20 23 4.0 4.6 8.6 47 53 6 (2.6)

04-15 14 30 2.8 6.0 8.8 32 68 6 (2.8)

04-16 9 21 1.8 4.2 6.0 30 70 6 0 

Grand 

Total 224 598 44.8 119.6 164.4 27 73 141 (22.4)

Notes:

1- Total Spring and Fall Actual Use are the cumulative number of hunts that occurred in each GUA in the spring and fall seasons

from 2010-2014.

2- Average Spring and Fall Use are the annual average per season from 2010-2014. 

3- Calendar year average from 2010-2014. 

4- Percentage of total hunts by GUA occurring in each season.

5- The number of hunts specified for each GUA by the BBMS. 

6- The difference between the BBMS and actual use (2010-2014 Yearly Average Actual Use). Numbers in parentheses indicate 

where the 2010-2014 actual use exceeds the BBMS.

7- The BBMS shows this total as 144, apparently due to a computation error.

As of 2015, the Forest Service has essentially met the BBMS guideline of a maximum of 20 guides and 

141 hunts. Spatial distribution of the hunts does not quite meet the guidelines. This appears to be at least 

partially related to counting hunts by a single client that occur in more than one GUA as multiple hunts in 

this table, as described above. This inflates the 5 year average by 34.4 hunts per year. The BBMS 

recommendations for the distribution of hunts by GUA were based on historical numbers and concerns 

about crowding rather than biological issues (ADF&G 2000). 

Despite these management actions, some concerns have surfaced that were unforeseen at the time the 

BBMS was developed. Bear harvest by nonresidents has increased as the hunt efficiency (success rate) 

has increased for guided hunts (Mooney 2013a). Thus, meeting BBMS numbers for guides and hunts may 

still result in unsustainable harvest. Guiding nonresident hunters on private lands was not formally 

considered in the BBMS. However, guiding on private lands is increasing and it will be necessary to 

reallocate hunts with private landowners at the table so the BBMS recommended nonresident hunt 

numbers are not exceeded (Mooney 2013a).

The BBMS also recognized the potential for conflict between brown bear hunting and viewing. The 

BBMS team recommended a set of management guidelines and locations for “Brown Bear Special Use 

Zones” to the management agencies. None of these zones have been created by the Forest Service. The 

BBMS also includes extensive recommendations for guided bear watching etiquette. 

Mountain Goat

Mountain goats (Oreamnos americanus) were selected as a TNF MIS to represent species using cliffs, 

alpine and subalpine, and old-growth forest habitats. They were selected as a MIS for this EIS based on 

their importance for hunting, recreation, and tourism. Mountain goats occur in suitable habitat throughout 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 171 - 
Chapter 3—Environmental Consequences

the southeast Alaska mainland (MacDonald and Cook 2007). They were successfully introduced to 

Baranof Island in 1923, but recent DNA analysis indicates that there was likely a relict population there 

prior to the transplant (Mooney 2012, Shafer et al. 2011). ADF&G reports that goat populations are at 

medium to high densities in GMU 1C and populations appear healthy (Scott 2012b). ADF&G 

characterizes the GMU 1D population as healthy overall (Sell 2012b) and GMU 4 as declining slightly 

compared to 2004 levels (Mooney 2012).

In all seasons, mountain goats use habitat close to cliffs with moderately steep, rugged slopes on southerly 

aspects (White et al. 2012). Generally, mountain goats migrate seasonally between alpine summer habitat 

and forested winter habitat where snow depths are less. The quantity and quality of winter habitat is the 

most limiting factor for mountain goats. Mature old-growth stands intercept snow and provide thermal 

cover and forage. Winter elevations are generally in the 1000-1500 ft. elevation range. However, there can 

be considerable variation based on local conditions. For example, in the Lynn Canal area some goats 

winter near sea level while others winter at high elevation where colder, drier and windier conditions 

prevent snow accumulation (White et al. 2012). Migration from winter habitat to summer habitat usually 

starts in mid-May as higher elevations become snow free. Migration from summer range to winter range 

begins around mid-October, corresponding to significant snowfall in the alpine (White et al. 2012). The 

breeding season for mountain goats occurs between late October and early December. Kids are born in 

mid-May to mid-June. 

Mountain goats are known to be sensitive to human disturbance (Foster and Rahs 1983, Frid 1997, 

Stankovich 2008). Disturbance can affect population dynamics indirectly by altering behavior which can 

result in greater energetic costs; animals perceiving increased risk may seek safety by running and/or 

moving to a different location. These behavioral changes can reduce foraging efficiency by increasing 

vigilance, and/or by forcing animals to forage in safer habitats but where food is less abundant. In 

addition to these overt responses, heart rates can become elevated, increasing metabolic rate and energy 

consumption. If disturbance is severe enough, increased energetic costs and reduced foraging efficiency 

could deteriorate the body condition of individuals to the point of reducing their reproductive success. 

For regulatory years 2001 to 2010 goat harvest in GMU 1C averaged 43 goats and GMU 1D averaged 32 

goats per year. For regulatory years 2006 to 2010 GMU 4 averaged 37 goats harvested per year. 

Seven guiding businesses are operating under special use permits to conduct up to 48 guided mountain 

goat hunts in the Analysis Area. From 2010 through 2014 guides provided an average of 27 goat hunts per 

year in GMU 1C, all within GUAs 01-05 (Tracy Arm/Fords Terror area) and 01-03 (Chilkat Range). From 

2010 through 2014 guides provided an average of 5 goat hunts per year on Baranof Island in GMU 4. 

Although goats are distributed throughout the GMU 1 mainland, hunting efforts are usually concentrated 

in areas where access is relatively easy. Because of this, guided hunts in Tracy and Endicott arms have 

become a major factor in the GMU 1C goat harvest. This is one of the few areas in the world where 

hunters can stay in comfort aboard large boats and make day hunts for goats along steep cliffs lining 

fiords. This use predominates late in the season, when snow often forces goats to lower elevations. The 

interest from registered guides to hunt goats in this area remains high (Scott 2012b). 

Forest Plan standards and guidelines provide for maintaining goat habitat and populations by locating 

facilities and human activities as far from important wintering and kidding habitat as feasible and 

managing disturbance from aircraft flights (USDA FS 2008a, p. 4-96). 

Sitka Black-tailed Deer

The Sitka black-tailed deer (Odocoileus hemionus sitkensis) was selected as a TNF MIS because it is an 

important game and subsistence species in Southeast Alaska. They were selected as an MIS for this EIS

because they are an important subsistence species and the Forest Service authorizes guided deer hunts. 

Sitka black-tailed deer occur on the mainland and most islands in southeast Alaska (MacDonald and Cook 

2007). Few, if any, deer occur in GMU 1D and there is no State or Federal harvest season. No population 

Chapter 3 - 172 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

estimates are available for deer in the Analysis Area, but based on a variety of indicators the population 

appears to be increasing in GMUs 1C and 4 following the severe winters in 2006-09 (Scott 2013, Mooney 

2013b). 

Although deer will use a wide range of habitat from shoreline to alpine, they are associated with oldgrowth forests. This species represents those that use lower elevation (below 800 ft. elevation) Productive 

Old Growth (POG) forest habitats during the winter. Research conducted in Southeast Alaska indicates 

that low-elevation, high volume old-growth habitats are particularly important to deer, especially during 

severe winters (Schoen and Kirchhoff 1990; Hanley and Rose 1987; Yeo and Peek 1992). These mature 

old-growth stands intercept snow, provide thermal cover, and support herb and shrub forage for deer 

(Alaback 1982; Schoen et al. 1984). The quantity, quality, distribution, and arrangement of winter habitat 

are considered the most important limiting factors for Sitka black-tailed deer in Southeast Alaska (USDA 

FS 2008b). 

Like other species discussed, deer have been shown to be susceptible to disturbance by humans. Deer 

from harvested populations may be more susceptible to disturbance than populations that are not hunted 

(Stankowich 2008). 

For ADF&G regulatory years 2007-2011GMU 1C approximately 813 hunters participated and harvested 

an estimated 345 deer per year (Scott 2013). For regulatory years 2007-2011 in GMU 4 approximately 

2,524 hunters participated and harvested an estimated 4,160 deer per year (Mooney 2013b). 

Guided deer hunting would be authorized under all alternatives. Fifteen guiding companies are authorized 

by the Forest Service to provide up to 117 guided deer hunts in the Analysis Area. Harvest by guided 

hunters is unknown, but reported use averaged 24 hunts per year from 2010 to 2014, ranging from 13 to 

39. All reported use occurred in GMU 4. Guided deer hunts are often done in combination with or may be

incidental to guided hunts for other species.

Forest Plan standards and guidelines for deer include considering deer habitat during project planning and 

analysis (USDA FS 2008a).

Vancouver Canada Goose

The Vancouver Canada goose (Branta canadensis fulva) was selected as a TNF MIS because of their 

association with wetlands (both forested and non-forested) in the estuary, riparian, and upland areas of the 

Forest. They were selected as an MIS for this analysis because they congregate in particular areas on the 

forest while molting during the summer which provides viewing opportunities, but they are particularly 

susceptible to disturbance during this time. 

There is little information on Vancouver Canada goose response to recreational activities. However, 

waterfowl in general have been shown to be susceptible to disturbance from activities such as hiking, 

kayaking, and motor vehicles (e.g. see Blanc et al. 2006, Boyle and Samson 1985). 

Vancouver Canada geese are relatively non-migratory, with the majority of birds moving only locally 

between nesting, brood rearing, molting, and winter concentration areas. They are highly mobile and are 

found throughout the mainland and islands of Southeast Alaska. They often nest in low productivity 

wetland and muskeg forest (Hupp et al. 2006). Nesting and brood-rearing habitats are potentially affected 

by various forest management activities, although timber harvest in these areas has generally been 

minimal because these sites are fairly unproductive. 

Large aggregations of molting geese are known to occur in the Analysis Area, such as Fool Inlet and 

various places in Tracy Arm/Fords Terror. Although other areas may be less well documented, with 

similar habitat and the population well distributed in the Analysis Area, molting congregations likely 

occur throughout the Analysis Area. These molting aggregations are sensitive to approach by humans in 

boats or on foot (Lebeda and Ratti 1983). 

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Estuarine habitats are important to Vancouver Canada geese during winter where they exploit marine 

grasses and salt marsh plants commonly found in intertidal areas (Fox 2008). Because intertidal 

communities are relatively stable environments, waterfowl that use such habitats often move little during 

winter and show strong fidelity when returning to winter sites (Hupp et al. 2010). Geese concentrated in 

these areas during the winter would be susceptible to disturbance (Fox 2008).

Guided waterfowl hunting is a permitted activity in the Analysis Area. However, very little guided 

waterfowl hunting is conducted, with just 14 total days reported during 2010 – 2014. Most guided 

waterfowl hunting is done incidental to or in combination with other guided hunts. In Alaska, an 

estimated 9,900 Canada geese were harvested by 1,900 hunters over 7,600 days afield, statewide 

(Raftovich et al. 2015).

The Forest Plan provides standards and guidelines to avoid or minimize disturbance to important goose 

habitat (USDA FS 2008a). Additionally, riparian and wetland standards and guidelines, which include the 

use of various best management practices, are designed to minimize impacts to and maintain the function 

of these habitats (USDA FS 2008a). 

Other Species of Concern

Other species that have Forest Plan standards and guidelines or other legal status, occur in the Analysis 

Area, and may be impacted by the Proposed Action or alternatives were included in this analysis. 

Harbor Seals

Harbor seals (Phoca vitulina) are not a TNF MIS or Region 10 Sensitive species. They were chosen for 

analysis because they are protected under the Marine Mammal Protection Act (MMPA), common in the 

Shoreline II O/G EIS Analysis Area, and popular on wildlife viewing tours. In addition, there are 

numerous haul-outs in the Analysis Area, several LGAs are near seal haul-outs, and hauled out seals are 

sensitive to disturbance. The MMPA prohibits the “take” of marine mammals. Take means “to harass, 

hunt, capture, or kill, or attempt to harass hunt, capture or kill.” Harassment means “any act of pursuit, 

torment, or annoyance which has the potential to injure a marine mammal or marine mammal stock in the 

wild; or has the potential to disturb a marine mammal or marine mammal stock in the wild by causing 

disruption of behavioral patterns, including but not limited to migration, breathing, nursing, breeding, 

feeding, sheltering.” National Marine Fisheries Service (NMFS) regulations further define take to include 

“the negligent or intentional operation of an aircraft or vessel, or the doing of any other negligent or 

intentional act which results in disturbing or molesting a marine mammal” (50 CFR 216.3). 

NMFS regulations pertaining to viewing seals include remaining at least 100 yards from marine mammals 

and limiting time spent observing individuals to 30 minutes. Additional guidance includes: 

• use extra caution when viewing seals that are on land or ice, as harassment may occur at distances

greater than 100 yards;

• when encountering seals hauled out on land or ice, avoid making the animals aware of your presence;

• while viewing marine mammals, your actions should not cause a change in the behavior of the

animals (see NMFS web site http://alaskafisheries.noaa.gov/protectedresources/mmv/guide.htm).

Recent voluntary, but strongly recommended, guidelines for all vessels in all glacial areas (e.g. Tracy 

Arm) have been established which include: 

• keep 500 yards away from all seals without compromising safe navigation;

• practice no wake;

• avoid abrupt changes in course or engine pitch;

• avoid loud noises;

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• avoid traveling through waters with greater than 50% ice cover;

• target visits during early morning and evening hours when fewer seals are hauled out; and

• specific travel areas for Tracy Arm are recommended.

Forest Plan direction for harbor seals includes (USDA Forest Service 2008a):

• ensuring Forest Service permitted or approved activities are conducted in a manner consistent with

the MMPA and NMFS regulations and guidelines, including prohibiting take;

• locating Forest Service authorized and approved facilities and concentrated human activities as far

from known marine mammal haul outs, rookeries and known concentration areas as feasible;

• guideline distances include locating developments 1 mile from known haul outs;

• Forest Service permitted or approved activities will not intentionally approach within 100 yards or

otherwise intentionally disturb or displace any hauled out marine mammal; and

• cooperate with State and other Federal agencies to develop sites and opportunities for the safe

viewing and observation of marine mammals by the public.

In Alaska, harbor seals range from southeast Alaska, west through the Gulf of Alaska and Aleutian 

Islands, in the Bering Sea north to Cape Newenham, and the Pribilof Islands. There are 12 stocks of 

harbor seals in Alaska, with 5 in southeast Alaska, and 3 within the Analysis Area (Allen and Angliss 

2014). The Glacier Bay/Icy Strait, Lynn Canal/Stephens and Sitka/Chatham stocks occur in the Analysis 

Area. The Glacier Bay/Icy Strait stock includes one of the largest breeding aggregations in the State, but 

has been on a long-term population decline. Trends are not known for the Lynn Canal/Stephens and 

Sitka/Chatham stocks. 

Harbor seals are generally non-migratory, but move locally associated with tides, weather, season, food 

availability, and reproduction (Allen and Angliss 2014). Pups are born between May and mid-July. Pups 

are able to swim almost immediately after birth. They remain with their mothers for about 1 month 

(Kinkhart et al. 2008). Harbor seals haul out of the water to rest, give birth, and nurse their pups. They 

spend more time hauled out in spring and summer during the pupping and molting seasons. Reefs, sand 

and gravel beaches, sand and mud bars, and glacial ice are used for haul out sites. Harbor seals are 

opportunistic foragers and take advantage of seasonally available prey resources, primarily fish (Kinkhart 

et al. 2008). 

While harbor seals will often voluntarily swim close to humans on beaches or in small boats, seals resting 

on land or ice are wary of people and will rush in to the water if approached too closely. Hauled out seals 

have been shown to be susceptible to disturbance by all vessel types (Henry and Hammill 2001, Jansen et 

al. 2014, Young 2009) as well as humans on foot. In general, the larger and closer the motorized vessel, 

the greater the disturbance (Young 2009). If disturbed too often, seals have been known to abandon 

favorite haul out sites or their pups (Kinkhart et al. 2008). Disturbance can increase the risk of motherpup separation during the short (approximately 3 weeks) but critical life stage of weaning when pups 

must receive maternal sustenance and protection to survive (Jansen et al. 2010). 

Seabirds 

Seabirds were chosen for analysis because some are protected under the Migratory Bird Treaty Act 

(MBTA), there are numerous nesting colonies in the Analysis Area, they are popular sights on wildlife 

viewing tours, nesting birds can be sensitive to disturbance, and the Forest Plan contains standards and 

guidelines for this group of species.

There is limited data on colonies of seabirds, but the Seabird Information Network maintains the online 

North Pacific Pelagic Seabird Database of sites recorded during surveys. This database is not all inclusive 

but includes 46 colony sites within the Analysis Area (R. Kaler personal communication). Most are 

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located along the outer coast of Baranof, Chichagof, and Yakobi Islands. Species include Leach’s stormpetrel, Fork-tailed storm-petrel, tufted puffin, common murre, glaucous-winged gull, pelagic cormorant, 

black-legged kittiwake, rhinoceros auklet, pigeon guillemot, thick-billed murre, ancient murrelet, herring 

gull, arctic tern, double-crested cormorant, black oystercatcher, horned puffin, mew gull, and Caspian 

tern. Many of the seabird colonies in the Analysis Area are on exposed rocky shores or inaccessible cliffs 

and do not receive substantial outfitter or guide use. Many are exposed to the open ocean and are 

therefore not protected enough for frequent motorized boating. Two colony sites are on the islands that 

contain the Three Hill Island and George Island LGAs. There are also known, but undocumented seabird 

sites around the Analysis Area, in locations such as Tracy and Endicott Arms and Stephens Passage that 

receive substantial vessel traffic and recreation related tourism. 

Colonial seabirds can be affected by human disturbance, particularly during the breeding season 

(Anderson and Keith 1980, Burger 1981, Chatwin 2010, Klein et al. 1995, Pierce and Simons 1986, 

Rodgers and Schwikert 2002, Rodgers and Smith 1995). Disturbance can also displace them from 

foraging areas. Carney and Sydeman (1999) reviewed literature on human disturbance of seabirds and 

found that many seabirds, such as cormorants, gulls, and terns, exhibited substantially reduced breeding 

success whereas other species, such as albatrosses and shearwaters, showed little to no effect or became 

habituated to repeated human presence. Chatwin (2010) studied offshore disturbance from motor boats 

and kayaks and found that most seabird species were not disturbed if boats and kayaks remained at least 

70 m. (230 ft.) offshore. However, Chatwin (2010) re-confirmed that surface-nesting seabirds are 

particularly vulnerable to land-based disturbance and recommended that viewers not go ashore at seabird 

nest or roost sites. Conversely, studies of impacts of motorboats and personal watercraft by Rodgers and 

Schwikert (2002) showed that buffers of 150 m. (approximately 500 ft.) were necessary to prevent 

flushing, nest abandonment, or other altered behavior. 

Forest Plan direction for seabird rookeries provides for the protection and maintenance of seabird (marine 

bird) rookeries. Direction includes locating facilities and concentrated human activities requiring Forest 

Service approval as far from known seabird colonies as feasible consistent with the Migratory Bird Treaty 

Act, maintaining a 250 m. no-disturbance distance from seabird colonies on upland habitats, and limiting 

the availability of garbage to gulls by requiring special use permittees to collect and dispose of garbage 

from their special use authorizations (USDA Forest Service 2008a).

Migratory Birds

The Migratory Bird Treaty Act of 1918 (amended in 1936 and 1972) prohibits the taking of migratory 

birds, unless authorized by the Secretary of Interior. Executive Order 13186 (Responsibilities of Federal 

Agencies to Protect Migratory Birds) provides for the conservation of migratory birds and their habitats 

and requires the evaluation of the effects of Federal actions on migratory birds, with an emphasis on 

species of concern. Federal agencies are required to support the intent of the migratory bird conventions 

by integrating bird conservation principles, measures, and practices into Forest Service activities and by 

avoiding or minimizing, to the extent practicable, adverse impacts on migratory birds when conducting 

Forest Service actions. A memorandum of understanding (MOU) was entered into between the Forest 

Service and the US DOI FWS to strengthen migratory bird conservation (USDA Forest Service 2008c). 

The MOU identifies strategies that promote conservation and avoid or minimize adverse impacts on 

migratory birds through enhanced collaboration between the Forest Service and USFWS and in 

coordination with State, Tribal, and local governments. The MOU requires that the Forest Service, within 

the NEPA process, evaluate the effects of Forest Service actions on migratory birds, focusing first on 

species of management concern along with their priority habitat and key risk factors. This includes, to the 

extent practicable, evaluating and balancing the long-term benefits of projects against short and long-term 

adverse effects, pursuing opportunities to restore or enhance habitat, and considering approaches to 

identify and minimize take. 

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Over 100 species of birds migrate from the lower 48 states, Central and South America, to nesting, 

breeding, and rearing grounds in Alaska. Most of the birds fly to the interior or northern Alaska and only 

pass through southeast Alaska on their way to the breeding grounds (USDA FS 2008b). Species most 

likely to be affected by this EIS are those that use shoreline, beach fringe, riparian, and estuarine areas, 

especially where large numbers concentrate in an area (e.g. migrating shorebirds). 

The Analysis Area includes 4 important bird areas (IBA). These are sites, identified by Birdlife 

International and partners, which provide essential habitat for one or more species of bird that have some 

level of conservation concern. IBAs on or adjacent to NFS lands in the project area include Port 

Snettisham, Berners Bay, Glacier Bay and Icy Strait, and Stephens Passage and Tracy-Endicott Arms. All 

of these IBAs are primarily aquatic although Berners Bay includes some uplands. Berners Bay is 

identified as a state priority site while the other three are identified and globally important sites. Each IBA 

focuses on the following species: marbled murrelet in Port Snettisham and Stephens Passage and TracyEndicott Arms; bald eagle, surf scoter, and Thayer’s gull in Berners Bay ; Barrow’s goldeneye, Kittlitz’s 

murrelet, marbled murrelet, pelagic cormorant, surf scoter, and white-winged scoter in Glacier Bay and 

Icy Strait.

Threatened, Endangered, and Sensitive Species 

The Analysis Area, assumptions, and affected environment for this section are the same as the MIS

species section above. 

Lists of Federally threatened and endangered species for the State of Alaska were accessed from the US

DOI FWS and NMFS websites on August 13, 2015 (Table 3-30, US DOI FWS 2015a; Table 3-31 NMFS 

2015). These lists were reviewed to determine which species occur in the Analysis Area using existing 

survey data, GIS layers and databases, communication with research personnel, agency internet sites, 

literature reviews, and information in the 2008 Forest Plan FEIS. Species known or suspected to occur 

within the Analysis Area were analyzed further. In addition the US DOI FWS is currently considering a 

petition for the Alexander Archipelago wolf, but it is not currently listed under the ESA. 

Table 3-30: Threatened and endangered species managed by the USFWS that occur in Alaska

Common Name Scientific Name ESA Status Location Description

Eskimo curlew Numenius borealis Endangered Nested in the Arctic tundra (US DOI FWS

2012a).

Short-tailed albatross Phoebastria albatrus Endangered Occupies coastal waters in the Gulf of Alaska 

and the Aleutian Islands (US DOI FWS 2015b).

Spectacled eider Somateria fischeri Threatened Occupies coastal waters in northern and 

western Alaska (US DOI FWS 2012b).

Steller’s eider Polysticta stelleri Threatened Occurs in northern and western Alaska (US

DOI FWS 2014a).

Northern sea otter, 

SW Alaska population

Enhydra lutris 

kenyoni Threatened

Inhabits the Aleutian Islands, Alaska Peninsula 

coast, and Kodiak Archipelago (US DOI FWS

2013a).

Polar bear Ursus maritimus Threatened Lives only in the arctic (US DOI FWS 2014b).

Wood bison Bison bison 

athabascae Threatened

Meadows interspersed with forest, peat, and 

shrub lands in interior Alaska and western 

Canada (US DOI FWS 2011). 

Pacific walrus Odobenus rosmarus 

divergens Candidate Continental shelf waters of the Bering and Chukchi Seas (Garlich-Miller et al. 2011).

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Table 3-31: Threatened and endangered species managed by the NMFS that occur in Alaska

Common Name Scientific Name Distinct Population Segment ESA Status

Blue whale Balaenoptera musculus Endangered

Bowhead whale Balaena mysticetus Endangered

Fin whale Balaenoptera physalus Endangered

Humpback whale Megaptera novaeangliae Endangered

North Pacific right whale Eubalaena japonica Endangered

Sei whale Balaenoptera borealis Endangered

Sperm whale Physeter macrocephalus Endangered

Beluga whale Delphinapterus leucas Cook Inlet Endangered

Gray whale Eschrichtius robustus Western North Pacific Endangered

Steller sea lion Eumetopias jubatus Western Endangered

Bearded seal Erignathus barbatus Threatened

Ringed seal Phoca hispida Threatened

Harbor seal Phoca vitulina Iliamna Lake 2 Candidate

Chinook salmon Oncorhynchus Puget Sound Threatened

tshawytshca Lower Columbia River Threatened

Upper Columbia River spring Endangered

Upper Willamette River Threatened

Snake River spring/fall Threatened

Snake River fall Threatened

Sockeye salmon Oncorhynchus nerka Snake River Endangered

Coho salmon Oncorhynchus kisutch Lower Columbia River Threatened

Steelhead Oncorhynchus mykiss Upper Columbia River Endangered

Middle Columbia River Threatened

Lower Columbia River Threatened

Upper Willamette River Threatened

Snake River Basin Threatened

Chum salmon Oncorhynchus keta Hood Canal summer run Threatened

Green sturgeon Acipenser medirostris Southern DPS Threatened

Leatherback sea turtle Dermochelys coriacea Endangered

Loggerhead sea turtle Caretta caretta Threatened

Green sea turtle Chelonia mydas Threatened

Olive Ridley sea turtle Lepidochelys olivacea Threatened

Pinto abalone Haliotis kamtschatkana Candidate

Since all Federally listed species known to occur in the action area are primarily restricted to the marine 

environment, activities in the marine environment of northern southeast Alaska form the basis of 

environmental baseline conditions. Vessel use of the marine environment is extensive and watercraft 

range from small personal skiffs to large commercial ships. The Forest Service does not have jurisdiction 

over marine waters, but access to permitted outfitter-guide use sites requires interdependent actions such 

as use of motorized boats or fixed-wing aircraft to reach sites.

The northern Tongass NF is an expansive area with a number of communities, including Juneau, the 

largest community in southeast Alaska. Most communities have at least one small harbor for personal 

Chapter 3 - 178 - Shoreline II Outfitter/Guide DEIS
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watercraft, commercial fishing vessels, and charter fishing boats. Most communities also have ferry 

terminals that support the Alaska Marine Highway. Several of the communities also have marine 

facilities that support cruise ships and large supply barges. Many local residents own and use boats for 

work and leisure. There is no data on the amount of boat traffic in the Analysis Area. However, vessel 

traffic varies substantially based on distance from communities and between major channels and secluded 

bays. 

Recreational use is not distributed equally. Some areas have intensive disturbance whereas others have 

less intensive disturbance (Leung and Marion 2000). Some factors affecting use in Southeast Alaska 

include distance from communities and ease of access such as protected anchorages, landing sites, and 

facilities (e.g., cabins). 

Use sites addressed in this EIS are primarily accessible via marine waters and therefore watercraft travel 

to them presents the potential for effects to marine mammals. Because individual activity allocations are 

not being set, it is not possible to determine or analyze the amount or type of future outfitter-guide boat 

use. However, this EIS is focused on shoreline use which is predominantly accessed by motorized boats. 

Boat access to sites was widely distributed across the area, with use reported at approximately 550 sites 

between 2010 and 2014. Guides employ a wide variety of motorized boats, from small motorized skiffs to 

small cruise ships. Potential effects from boats include acoustic disturbance (engine noise), ship strike, 

wave action from boat wakes, and fuel or oil spills. In some cases, the larger vessels may launch smaller 

skiffs and kayaks for shore excursions. Kayakers make less noise and are less likely to accidentally strike 

marine mammals, although they may disturb them, particularly when hauled out on shore or ice 

(Gunvalson 2011). Also, some guides use small plane support to exchange clients from town rather than 

return to town with their vessel. 

Threatened and Endangered Species Not Addressed in Detail

The species in this section are not expected to occur in the Analysis Area and their habitat will not be 

affected by the Shoreline II O/G EIS. Therefore no direct, indirect, or cumulative effects are expected and 

they will not be addressed further. 

Species Managed by the US Fish & Wildlife Service

None of the species listed as threatened or endangered by the US DOI FWS (Table 3-30) occur in 

Southeast Alaska; therefore, they do not occur in or around the Analysis Area. The Forest Service does 

not address candidate species in the biological evaluation, but Region 10 policy is that candidate species 

are automatically designated as sensitive species (R10 Supplement, FSM 2672.11). Therefore, the Pacific 

walrus, plus the pinto abalone and Iliamna Lake harbor seal, are addressed as sensitive species below. 

Whales (except humpback)

Blue, fin, sei, and sperm whales are generally found in off-shore marine waters of the Bering Sea, 

Chukchi Sea, North Pacific Ocean, and/or Gulf of Alaska (NMFS 1998a, NMFS 1998b, NMFS 2006a, 

NMFS 2006b). No critical habitat has been designated for these species in Alaskan waters. Bowhead 

whales are distributed in seasonally ice-covered waters of the Arctic and near-Arctic, generally north of 

54°N and south of 75°N in the western Arctic Basin. The majority of the Western Arctic stock migrates 

annually from wintering areas in the northern Bering Sea, through the Chukchi Sea in the spring, to the 

Beaufort Sea where they spend much of the summer before returning again to the Bering Sea in the fall to 

overwinter (Shelden and Rugh 1995). The western North Pacific gray whale occurs off the coast of 

eastern Asia (Weller et al. 2002). It is genetically and geographically isolated from the eastern North 

Pacific gray whale population (Weller et al. 2002). NMFS range maps for the western North Pacific gray 

whale show its range extending into the eastern Gulf of Alaska, but not into southeast Alaska waters 

(NMFS 2014). No critical habitat has been designated for these species in Alaskan waters. The north 

Pacific right whale generally occurs in continental shelf waters (NMFS 1991a) of the North Pacific 

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Ocean, Gulf of Alaska, and Bering Sea between 40 and 60 degrees north latitude, and has critical habitat 

designated in the southeastern Bering Sea and the shelf and slope waters south of Kodiak Island (NOAA 

2008). Beluga whales are closely associated with open leads and polynyas in ice-covered regions. 

Depending on season and region, beluga whales may occur in both offshore and coastal waters. The Cook 

Inlet belugas occur in the Gulf of Alaska as far southeast as Yakutat in winter. They do not occur in the 

waters of the Alexander Archipelago (NMFS 1998c). 

Seals

Bearded and ringed seals were petitioned for listing in March of 2008 and listed in December 2012 

(NOAA 2012). These species are referred to as “ice seals” because they are directly associated with seaice habitats (NOAA 2008). These species occur from the Arctic Ocean to the western Pacific and do not 

occur in Southeast Alaska (Allen and Angliss 2014). 

Salmon and green sturgeon

Information on fish species is included in hydrology and fisheries below. 

Turtles

Marine turtles are highly migratory and typically associated with warm temperate to tropical waters. 

Although all turtle species in Table 3-31 have been observed in southeast Alaska waters, Alaska is not 

considered part of their normal range and occurrence here is rare. There is no nesting by any of these 

marine turtles on Alaskan or other United States beaches in the Pacific (NMFS and USFWS 1998a, 

1998b, 1998c, 1998d). 

Threatened and Endangered Species Addressed in Detail

Humpback whales

Humpback whales were listed as endangered under the Endangered Species Conservation Act on 

December 2, 1970 (US DOI FWS 1970), and have been listed under the ESA since its implementation in 

1973. There have traditionally been four recognized stocks of humpback whales in the North Pacific. The 

Central North Pacific stock occurs in the southeast Alaska area (NMFS 1998d), but there appears to be a 

low level of interchange between stocks (Calambokidis et al. 2001). No critical habitat has been 

designated for this species in Alaskan waters. 

In April 2013 the NMFS received a petition to list the North Pacific population of the humpback whale as 

a Distinct Population Segment (DPS) and to delist it under the Endangered Species Act. In August 2013 

the NMFS announced its 90-day petition finding that the petitioned action may be warranted (NOAA 

2013). Additionally, in February 2014, the State of Alaska petitioned NMFS to designate the Central 

North Pacific Stock of the humpback whale as a DPS and remove the DPS from the list of endangered 

and threatened species under the Endangered Species Act. In June 2014 the NMFS announced its 90-day 

petition finding that the petitioned action may be warranted (NMFS 2014). NMFS reviewed the status of 

the humpback whale globally to determine whether endangered listing for the entire species is still 

appropriate. Based on this review, NMFS proposed to change the status of the humpback whale under the 

ESA (NOAA 2015). NMFS proposed 14 DPS world-wide. The Hawaii DPS (currently Central North 

Pacific Stock) would not be listed as threatened or endangered under this proposal. Final action on this 

proposal is not expected prior to a decision on this EIS. If the Hawaii DPS is delisted under the ESA, it 

would remain protected under the MMPA, and would become a Forest Service Alaska Region sensitive 

species for at least 5 years following delisting. 

The available data suggest that the central North Pacific stock is increasing in abundance. The estimated 

rate of increase varies by methodology and area studied but ranges between 5.5 – 10% per year (Allen 

and Angliss 2014). Calambokidis et al. (2008) estimated the annual rate of increase for the stock at around 

Chapter 3 - 180 - Shoreline II Outfitter/Guide DEIS
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5.5-6% since the early 1990s. Hendrix et al. (2012) estimated a 5.1% annual increase in northern 

southeast Alaska (from Frederick Sound north) between 1986 and 2008. 

Commercial whaling operations were the primary contributor to the decline in humpback whale 

populations (NMFS 1991b). The recovery plan completed by the NMFS for the humpback whale 

identified six known or potential categories of human impacts to these species: hunting, entrapment and 

entanglement in fishing gear, collisions with ships, acoustic disturbance, habitat degradation, and 

competition for resources with humans. The primary ongoing threat to humpback whales is entanglement 

in fishing gear (NMFS 1991b); especially drift gill-nets (Carretta et al. 2007). The minimum annual 

mortality and serious injury rate due to fisheries related activities is 7.45 whales per year for the entire 

stock and 2.55 whales per year for Alaska (Allen and Angliss 2014). 

Between 1978 and 2011, 108 whale-vessel collisions were reported in Alaskan waters, a majority (86 

percent) of which involved humpback whales (Neilson et al. 2012). Twenty-five of these collisions 

resulted in the whale’s death. The minimum annual mortality due to vessel strikes is 4.23 whales per year 

for the entire stock and 1.8 for Alaska (Allen and Angliss 2014). Laist et al. (2001) found that while all 

sizes and types of vessel can strike a whale, ships greater than 80 meters and those going faster than 14 

knots were most likely to cause severe or fatal injuries. 

Whales that use low-frequency sounds (such as the humpback whale) may be at an increased risk for 

disturbance from anthropogenic noise (Carretta et al. 2007). The Central North Pacific stock is the focus 

of a large whale watching industry in its wintering grounds (Hawaii) and a growing whale watching 

industry in Alaska where it spends the summer (Allan and Angliss 2014). Whale watching could result in 

acoustic disturbance or displacement from preferred habitats. Noise from small and large boats can 

disturb whales, however it is not likely to mask communication or cause harm to their auditory system, 

especially boats abiding by NMFS standoff distance of 100 yards (Au and Green 2000). However, Ellison 

et al.(2012) were concerned that most studies to date only focused on the acute effects and did not assess 

chronic effects or contextual factors that may affect response.

Humpback whales are common in the inside waters of the Alexander Archipelago and are regularly 

sighted in the Inside Passage and coastal waters of southeast Alaska from Yakutat Bay south to Queen 

Charlotte Sound. Humpback whales feed in southeast Alaska waters from about May through December, 

although some have been seen every month of the year (NMFS 1991b). Calambokidis et al. (2008) 

estimated between 7,469 and 10,103 humpback whales for the central North Pacific stock, and between 

2,883 and 6,414 humpback whales in southeast Alaska and northern British Columbia. Hendrix et al. 

(2012) estimated a 2008 humpback whale population of 1586 in northern southeast Alaska. They also 

documented movement between subareas of southeast Alaska. 

The local distribution of humpbacks in Southeast Alaska appears to be correlated with the density and 

seasonal availability of prey, particularly herring and euphausiids. Important feeding areas include Glacier 

Bay and adjacent portions of Icy Straight, Stephens Passage/Frederick Sound, Seymour Canal, and Sitka 

Sound. Glacier Bay and Icy Straight appear to be important feeding areas early in the season, when 

whales prey heavily on herring and other small, schooling fishes. Frederick Sound is important later in 

summer, when whales feed on swarming euphausiids. During autumn and early winter, humpbacks move 

out of the Sound to areas where herring are abundant, particularly Seymour Canal (NMFS 1991b). 

Boats transporting guides and clients to various sites on the forest have the potential to affect humpback 

whales. A variety of responses to boats have been noted (e.g. see Frankel and Clark 1998, Corkeron 

1995). These responses include changes in respiration rates, diving behavior, and swimming direction. 

Vessel speed and distance from the whale can affect the whale’s response. Vessels used by permitted 

outfitter/guides for this project include a wide variety of vessels from kayaks to small approximately 20 

foot skiffs to 186 foot small size cruise ships carrying up to about 75 guests plus crew. 

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Humpback whales are known to occur in the marine waters adjacent to the project area. No surveys were 

conducted specifically for humpback whales. Forest Plan direction for humpback whales (USDA FS 

2008b, 4-99) includes protecting habitat and ensuring FS permittees follow regulations for preventing 

take. Take includes harassing or pursuing or attempting such activities.

Steller sea lion – western distinct population segments (DPS)

The Steller sea lion ranges from Hokkaido, Japan, through the Kuril Islands and Okhotsk Sea, Aleutian 

Islands and central Bering Sea, Gulf of Alaska, Southeast Alaska, and south to central California (NMFS

2008). They consist of two distinct population segments (DPS) separated at 144° W longitude (near Cape 

Suckling, just east of Prince William Sound, Alaska). The NMFS listed the Steller sea lion as threatened 

range-wide under the Endangered Species Act in April 1990. The decline has continued for the western 

population in Alaska, which was declared endangered in 1997. 

In November 2013 the NMFS published a final rule to delist the eastern DPS of the Steller sea lion 

(NOAA 2013). The NMFS conducted a status review and determined that this DPS no longer meets the 

definition of a threatened species and has recovered sufficiently that delisting is warranted. The eastern 

DPS remains protected under the Marine Mammal Protection Act. By FS policy (USDA FSM 2600), the 

eastern DPS of the Steller sea lion will be a FS sensitive species for at least five years following delisting 

and will be addressed in the sensitive species section of this analysis. The western DPS of the Steller sea 

lion remains classified as an endangered species and no changes have been made to critical habitat 

designations. Critical habitat may be modified in a later ruling (NOAA 2013a). 

A recent minimum population estimate for the United States portion of the western DPS was 45,659 

(Allen and Angliss 2014). This estimate did not correct for animals that were at sea during the surveys. 

Data suggests that the western DPS population overall increased between 2000 and 2012 although it still 

seems to be decreasing west of Samalga Pass in the Aleutians (Allen and Angliss 2014). 

Steller sea lions inhabit colder temperate to sub-arctic pelagic and near-shore waters in the North Pacific 

Ocean with sufficient prey for foraging, terrestrial haul-out sites which are used for rest and molting, and 

rookeries used for mating and pupping (NMFS 2008). Haul-outs and rookeries are gravel, rocky, or sand 

beaches, ledges, or rocky reefs (NMFS 2008). They take prey opportunistically and eat many different 

fish, such as capelin, cod, herring, mackerel, pollock, rockfish, salmon, and sand lance. They also eat 

bivalves, cephalopods, and gastropods. 

Adult males are first to arrive at rookeries and establish territories by mid-May. Peak parturition is late 

May through early July, and breeding takes place about 11 days later (NMFS 2008). Territorial males 

abandon territories once breeding ends and by August adult males leave rookeries although adult females 

and young may remain through September. In winter sea lions may travel far out to sea into water greater 

than 1,000 meters deep and commonly near and beyond the 200 meter depth contour (NMFS 2008). 

Additional life history and population information is contained in the Recovery Plan (NMFS 2008) and is 

incorporated by reference. 

Vessels may disturb Steller sea lions while they are in the water feeding or traveling. Their response is to 

dive and resurface some distance away from the vessel. They may mill around the vessel or disperse. 

Steller sea lions are also attracted to vessels when food is being captured or processed and some animals 

become habituated to this method of feeding (illegal shooting may occur in these instances). Although it 

is possible for a Steller sea lion, particularly a young animal, to be harmed by a collision with a vessel 

(most likely caught by the propeller), they are generally very agile and successful at avoiding such 

encounters when in the water. Collisions with vessels are not believed to be a significant source of 

mortality of Steller sea lions (NMFS 2005). Vessel noise does not seem to strongly affect pinnipeds while 

they are in the water. 

Critical habitat including haul-out and rookery sites has been designated for Steller sea lions and includes 

a 3,000-foot distance landward and seaward from major rookery and haul-out sites in southeast Alaska. 

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Major rookeries and haul-outs in southeast Alaska are identified in 50 CFR 226. There is one rookery and 

eight haul outs designated as critical habitat within the Analysis Area. Biali Rock is listed in the CFR as a 

haul out but is now known to also be a rookery (NMFS 2013b). There are numerous other locations where 

smaller numbers of sea lions regularly haul-out which are not documented or mapped (such as navigation 

markers).

Table 3-32: Steller sea lion critical habitat in the Analysis Area (50 CFR 226)

Location Type Use Area

White Sisters Rookery 04-15D

Benjamin Island Haul out 01-04B

Biali Rock Haul out 04-02B

Cape Cross Haul out 04-15B

Cape Ommaney Haul out 04-01B

Biorka (Kaiuchali) Island Haul out 04-02C

Gran Point Haul out 01-01

Point Lull Haul out 04-04B

Sunset Island Haul out 01-05C

Most of the sea lions that occur in the Analysis Area are from the eastern DPS. However, the NMFS has 

determined that some individuals of the endangered western DPS commonly occur year-round in 

southeast Alaska, north of Sumner Strait (NMFS 2013c). Fritz et al. (2013) estimated an average annual 

breeding season movement of western DPS Steller sea lions to southeast Alaska of 917 animals. Less than 

2% of all re-sightings of sea lions branded in the western population occurred in the eastern population 

(Raum-Suryan et al. 2002).

Forest Plan direction for sea lions (USDA Forest Service 2008) includes protecting habitat and ensuring 

that FS permittees follow regulations for preventing take. Take includes harassing or pursuing or 

attempting such activities. 

Sensitive Species

The sensitive species list for the Alaska Region was revised February 2, 2009 but by Alaska Region 

policy also includes species more recently designated as candidates by the NMFS or US DOI FWS. 

Table 3-33 lists the US Forest Service Region 10 sensitive species. Information on basic biological and 

ecological requirements for some of these species is found in the Forest Plan FEIS which is incorporated 

by reference. Additional literature and information is maintained in the district files. Standards and 

Guidelines for sensitive species are described starting on page 4-88 of the Forest Plan. 

Table 3-33: Alaska Region (R10) sensitive species

Common Name Scientific Name

Aleutian tern Sterna aleutica

Black oystercatcher Haematopus bachmani

Dusky Canada goose Branta canadensis occidentalis 

Kittlitz’s murrelet Brachyramphus brevirostris

Queen Charlotte goshawk Accipiter gentilis laingi

Steller sea lion – eastern DPS Eumetopias jubatus

Pacific walrus Odobenus rosmarus divergens

Iliamna Lake harbor seal Phoca vitulina

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Aleutian tern

The Aleutian tern breeds in Alaska and Siberia. In Alaska, they are associated with coastal areas 

throughout the Aleutian Island as far west as Attu Island, north to the southeast Chukchi Sea and east to 

the Alaska Peninsula, Yakutat, and Glacier Bay. Aleutian terns feed primarily in shallow waters, including 

tidal rips, rivers, inshore marine waters and fresh water ponds and marshes, on small fish (e.g. capelin and 

sand lance), marine invertebrates and some insects (US DOI FWS 2006a). They nest in coastal colonies in 

a variety of habitats including islands, shrub-tundra, grass or sedge meadows, and freshwater coastal 

marshes (US DOI FWS 2006a). On the Tongass NF nesting colonies occur on the Yakutat Ranger District 

as well as in the adjacent Glacier Bay National Park. 

Their migration routes and wintering areas are not well known, but they are thought to migrate over water 

to wintering areas in the tropical western Pacific (Haney et al. 1991).

The world population is estimated at 17,000-20,000 individuals, while the Alaska breeding population is 

estimated at around 9,500 birds (US DOI FWS 2006a). Population viability concerns in Aleutian terns 

have been raised due to population declines throughout their range. Declines may result from both natural 

and human-induced causes such as isostatic rebound, structural changes in vegetation, shifts in forage 

prey populations, and disturbances from human activities (Goldstein et al. 2009). Aleutian terns are highly 

sensitive to human disturbance (North 2013, US DOI FWS 2006a).

Aleutian terns are considered casual or accidental in southeast Alaska (Armstrong 1995).There is only one 

reported sighting of Aleutian terns in the Analysis Area (eBird 2015). There are no known nesting 

colonies within the Analysis Area. 

There is no specific Forest Plan direction for this species but general direction for seabirds and shorebird 

habitats apply (USDA Forest Service 2008a, pp. 4-93 to 94). Direction for the protection of beach, 

estuary, and riparian habitats maintain habitat most likely to be used by this species.

Black oystercatcher 

Black oystercatchers have a small global population (estimates of 8,500 – 11,000 individuals) with 

distribution from the Aleutian Islands down the Pacific Coast to Baja California. The majority of the 

population breeds in Alaska, concentrated especially in Prince William Sound and the Kodiak 

Archipelago. The population trend in Alaska is thought to be stable, but survey data is limited, and trend 

data virtually nonexistent. In addition to being a R10 sensitive species, black oystercatchers are listed as a 

species of “high concern” in the Alaska shorebird conservation plan (Alaska Shorebird Group 2008), a 

U.S. Fish and Wildlife Service bird of conservation concern within region 7 (Alaska), and are included in 

the Alaska Audubon Watch List.

Black oystercatcher populations appear to be regulated by the availability of quality foraging and nesting 

habitat. Because they are confined to specific shoreline habitat and congregate during the winter, they are 

vulnerable to natural and human disturbances. Threats include predation, recreational disturbances, 

flooding, vessel wakes, and shoreline contamination (Tessler et al. 2007). Extensive data collection from 

Kodiak Island to British Columbia in the early 2000s showed these long-lived birds have high site fidelity 

but low reproductive rates and high inter-annual variability in nest success (Goldstein et al. 2009).

They favor rocky shorelines and forage exclusively on intertidal macroinvertebrates (e.g., limpets and 

mussels) found in sheltered areas of high tidal variation (Tessler et al. 2007). Black oystercatchers nest in 

uneven distribution, usually in close proximity to gradually sloping shorelines with dense mussel beds. 

Nesting sites, range from mixed sand and gravel beaches to exposed rocky headlands. Nests are generally 

shallow circular depressions lined with shell fragments or pebbles located just above the high tide line. 

Some nests may be on cliffs above the high tide line. They tend to avoid vegetated habitats and are most 

abundant on non-forested islands (Tessler et al. 2007). 

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Most egg laying occurs in May and early June but replacement clutches may be laid into mid-July 

(Anders and Falxa 1995). The eggs are incubated for about four weeks. Chicks can leave the nest bowl 

within one day of hatching, but it takes about three days before they can walk and swim competently. The 

parents brood the chicks at least intermittently for up to 23 days. The young can fly by about 40 days, but 

they remain with their parents through the first year (Anders and Falxa 1995). 

In winter, oystercatchers concentrate on protected, ice-free tidal flats with dense mussel beds. In Alaska, 

migrating and wintering flocks favor tidal flats of protected bays and inlets, where mussel beds occur. 

They forage almost exclusively in intertidal habitats, on rocky shores exposed to surf action and on 

sheltered gravel, cobble, or sandy shores and mudflats of bays and sounds (Anders and Falxa 1995). 

There is suitable habitat for black oystercatchers in the Analysis Area and they have been reported in the 

Analysis Area (eBird 2015). No comprehensive surveys of the Analysis Area have been completed but 

they are assumed to occur where suitable habitat exists. 

There is no specific Forest Plan direction for this species but general direction for seabirds and shorebird 

habitats apply (USDA FS 2008a, pp. 4-93 to 94). Direction for the protection of beach, estuary and 

riparian habitats also helps maintain habitat for this species.

Dusky Canada goose

Dusky Canada geese nest primarily on the Copper River Delta and winter in southwestern Washington 

and western Oregon (Bromley and Rothe 2003). Dusky Canada goose nest areas have not been identified 

on the Tongass NF, but they may occur here while migrating to and from winter habitat (Bromley and 

Rothe 2003). Dusky Canada geese appear to leave the Copper River Delta area in early to mid-October 

for fall migration. They are thought to migrate primarily offshore, with few stops on the way to the 

wintering area. Most appear to have returned to the Copper River Delta by mid to late April and again, 

appear to make few stops along the way (Bromley and Rothe 2003).

Most Canada geese in the Analysis Area are Vancouver Canada geese which are nearly indistinguishable 

from dusky Canada geese. It is possible but unlikely dusky Canada geese could be in the Analysis Area

for short periods during spring and fall. No project level surveys were conducted. There is no specific 

Forest Plan direction for this species but general direction for waterfowl and shorebird habitats apply 

(USDA FS 2008a, pp. 4-93 to 94) and direction for the protection of beach, estuary and riparian habitats 

maintain habitat for this species. 

Kittlitz’s murrelet

In May 2001, the USFWS received a petition for listing the Kittlitz’s murrelet. In May 2004, the USFWS 

published in the Federal Register (US DOI FWS 2004) that listing of the Kittlitz’s murrlet was warranted 

but precluded, indicating Candidate species status. In October 2013 the US DOI FWS determined that 

listing the Kittlitz’s murrelet was not warranted (US DOI FWS 2013). Therefore, the species is no longer 

a US DOI FWS Candidate species. However, it remains on the Alaska Regional Forester list of sensitive 

species. 

The Kittlitz’s murrelet was designated as a candidate species because of concerns with significant 

population declines. Range-wide, the population declined substantially between 1989 and 2000 but 

stabilized between 2000 and 2012. The causes for the decline have not been satisfactorily determined (US

DOI FWS 2013). The range-wide population is estimated to be around 33,500 birds (US DOI FWS 2013). 

Kittlitz’s murrelet is a small diving seabird that is closely associated with glacial habitats along the Alaska 

mainland coast. The only North American population occurs in Alaskan waters from Point Lay south to 

northern Southeast Alaska (Endicott and Tracey Arm) (US DOI FWS 2006b). Records indicate that the 

distribution once reached as far south as LeConte Bay (Agler et al. 1998, Webster 1950). Recent surveys 

found that these murrelets were distributed from Icy Bay to Endicott Arm with the highest density in Icy 

Bay and none observed in LeConte Bay (Kissling et al. 2007). The largest breeding populations are 

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believed to be in Glacier Bay National Park and Preserve, Prince William Sound, Kenai Fjords, and Icy 

Bay (Kendall and Agler 1998). The Kittlitz’s murrelet population has shown a significant decline in 

Prince William Sound, Glacier Bay and in the Malaspina Forelands (USFWS 2006b). 

Kittlitz’s murrelets congregate near tidewater glaciers and offshore of remnant high-elevation glaciers 

during the breeding season. Breeding sites are usually chosen in the vicinity of glaciers and cirques in 

high elevation alpine areas with little or no vegetative cover (van Vliet 1993). Nesting habitat is 

characterized by sparsely vegetated scree-fields, coastal cliffs, barren ground, rock ledges, and talus 

above timberline in coastal mountains, generally in the vicinity of glaciers, cirques near glaciers, or 

historically glaciated areas. Surveys completed in Southeast Alaska found that Kittlitz’s murrelet used a 

greater variety of habitat then previously acknowledged including glaciated fjords on the mainland and 

exposed areas along the outer coast in addition to more protected inner fjords (Kissling et al. 2007). 

During winter and spring, the marine distribution of Kittlitz’s murrelet is farther offshore (USFWS 2002). 

Prey consists of fish including sand lance (Ammodytes hexapterus), herring (Clupea pallasi), capelin 

(Mallotus villosus), and sandfish (Trichodon trichodon), and euphausiids, amphipods and small 

crustaceans (Day et al. 1999). They forage extensively near the outflow from glaciers, both tidewater and 

retreated glaciers with turbid glacial streams, and primarily within 656 ft. (200 m.) from shore (Day et al. 

1999). Higher densities of murrelets were observed where tidewater glaciers were stable or retreating and 

with adjacent uplands dominated by ice. Along the outer coast, abundance was associated with distance to 

shore (within 200 m.) and shallow waters (10 fathoms or less) (Kissling et al. 2007).

Due to the Kittlitz’s murrelet association with glacial habitat, this species occupies only very specific 

areas on the Tongass NF. General Forest Plan direction for seabirds and shorebird habitats apply (USDA 

FS 2008a, pp. 4-93 to 94).

The USFWS reviewed available literature for recreational effects on Kittlitz’s murrelets for their listing 

determination (US DOI FWS 2013). They concluded that it is unlikely that boats would directly impact 

Kittlitz’s murrelets because of their ability to dive or flush from the water if within a vessel pathway and 

their maneuverability during flight. A number of studies that they reviewed found evidence of indirect 

impacts such as increased energetic costs, increased predation risk, temporary changes to foraging habitat 

characteristics, displacement of murrelets and reduced ability to feed (e.g. see Day et al. 2003, Speckman 

et al. 2004, Agness et al. 2008, Agness et al. 2013). They determined that there is no evidence that these 

indirect impacts resulted in reduced fitness, such as reduced nest success or survival, affecting 

population(s) or individuals. Schoen et al. (2013) found that the average probability of an individual 

Kittlitz’s murrelet encountering a vessel at least once per day in Yakutat Bay was extremely low (0.0097; 

SE=0.0031), and the proportion of the local population disturbed daily was 0.98 percent. Most of the 

waters within the Analysis Area are not expected to contain Kittlitz’s murrelets, and where they do occur 

it’s likely they will be less dense than in Yakutat Bay. 

Queen Charlotte goshawk

The Queen Charlotte goshawk has been the subject of listing petitions and several other legal challenges 

under the ESA. The US DI FWS evaluated listing the goshawk in 2007 and concluded that the subspecies 

population in southeast Alaska is a distinct population segment (DPS) and that the best available 

information on biological vulnerability and threats to the goshawk did not support listing this population 

as threatened or endangered at that time (US DI FWS 2007a). In 2012 the US DI FWS listed the British 

Columbia DPS as threatened, but again, the southeast Alaska DPS was not listed (US DOI FWS 2012). 

The US DI FWS did not support listing the southeast Alaska DPS because of differences in conservation 

status, habitat management, and regulatory mechanisms (US DI FWS 2012).

The Queen Charlotte goshawk is recognized as a distinct subspecies of the northern goshawk (Accipiter 

gentilis) that occurs only in coastal areas of British Columbia and in Southeast Alaska. Because it is 

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difficult to distinguish between the Queen Charlotte and northern goshawk, this document will refer to 

both as “goshawks”. 

Within Southeast Alaska and on the Tongass NF, the goshawk is a year-round resident and may occupy 

different or overlapping winter and breeding territories (USDA FS 2008b). Goshawks are a wide-ranging 

forest raptor that occupies old-growth forest habitat in Southeast Alaska. Productive old-growth (POG) 

forest is an important component of goshawk habitat use patterns in Southeast Alaska and at all scales 

(nest tree, nest site, post-fledging areas) goshawks select POG forest types. For this analysis, POG is 

defined using the size density model (SDM) that uses average tree size (quadratic mean diameter) and 

average tree density (stand density index) based on stand structure associated with stand age and site 

conditions to define differences in forest structure (Caouette and DeGayner 2005). The model delineates 

seven size density (SD) classes (SD4H, SD4N, SD4S, SD5H, SD5N, SD5S, SD67) that describe POG 

forest stand structure. High volume POG (HPOG) may include the largest trees and is defined as SD5N, 

5S and 67. 

Non-productive forest types and young-growth stands are also used to a lesser extent, and in some areas 

these matrix lands may be important for long-term goshawk management (Reynolds et al. 1992). Most 

other habitat types (such as alpine, subalpine, muskeg, and clearcuts) were used infrequently or avoided 

by goshawks. Occasionally, goshawks will nest in younger forests or in smaller patches of trees, and 

forage in young forest as well as along edges and in openings (Boyce et al. 2006). 

Suitable nest site habitat consists of large trees with a dense canopy and generally an open under-story 

averaging 12 to 37 acres in size (Flatten et al. 2001). Lewis (2005) analyzed 63 nest sites (habitat 

immediately surrounding the nest) from 50 nesting areas (a 20- to 30-acre area surrounding a nest, 

including roosts and prey plucking sites) in southeast Alaska found that 89 percent were located in high 

volume stands with relatively dense, multi-storied canopies (SD5N, SD5S, and SD67 categories). Nest 

areas had significantly more forest, productive forest, hemlock, and canopy cover and less non-forested 

area than random 12-hectare plots, and less non-forested habitat and forest/non-forest edge than random 

65-hectare plots (Lewis 2005).

Foraging areas comprise the largest percentage of the goshawk’s home range. Foraging habitat is 

characterized by forested stands with a greater diversity of age classes and structural characteristics (e.g., 

snags, woody debris) than nesting areas (Reynolds et al. 1992). Breeding season home range size is 

strongly dependent upon the quality of foraging habitat and prey availability. In Southeast Alaska, prey 

remains identified in goshawk breeding areas included Steller’s jays (Cyanocitta stelleri), grouse 

(Dendragapus spp.), varied thrush (Ixoreus naevius), red squirrel (Tamiasciurus hudsonicus), and 

woodpeckers (Picidae) (Titus et al. 1994). The median size adult goshawk home range during the 

breeding season in Southeast Alaska was 9,469 acres for females and 11,425 acres for males (Iverson et

al. 1996). 

Goshawks generally occur in low densities in Alaska. Populations are believed to have declined, primarily 

due to timber harvest since the 1950s. In 2007, the US DOI FWS estimated the goshawk population at 

261 to 336 breeding pairs on the Tongass National Forest and 300 to 400 pairs across Southeast Alaska 

(US DOI FWS 2007), but confidence in the estimate was low. Flatten et al. (2001) observed a 45 percent 

territory occupancy rate in Southeast Alaska from 1991 to 1999. Mean productivity was 2 fledglings per 

nest with a 93% success rate of greater than 1 young fledged. 

The major threat to goshawks is the loss of old growth habitat due to logging. Low prey diversity results 

in higher sensitivity to habitat modification which may further reduce prey diversity and abundance. 

Disease and predation also contribute to population declines, especially in the presence of other stress 

factors such as prey shortages, but there is no indication that goshawks have experienced any significant 

problems with disease or predation in Alaska (US DOI FWS 2007). 

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Little work has been done on the effects of recreation disturbance on goshawks. Some goshawks appear 

to tolerate certain types and intensities of human disturbance. Rutz et al. (2006) found that goshawks in 

Europe are highly adaptable to human-altered landscapes and are tolerant of intense human activities in

some areas. However, anthropogenic disturbances can cause goshawks to abandon territories even with 

suitable forest structure (Reynolds et al. 1992; Squires and Reynolds 1997). Disturbance can indirectly 

influence goshawk reproductive success by affecting the time female goshawks allocate to incubation and 

foraging. (Morrison et al. 2011). Morrison et al. (2011) found a negative correlation between human 

activity, including recreation activities, and goshawk productivity. 

There are at least 67 known historic nests within the Analysis Area, many of which are alternate nests 

within the same territory. Thirty-five of the nests are within the shoreline zone (project area). The current 

status of these nests is unknown. 

Forest Plan direction for goshawks (USDA Forest Service 2008a, pp. 4-99 to 100) focuses on nest site 

management, including conducting inventories to determine the presence of nesting goshawks for 

proposed projects that affect goshawk habitat. Continuous disturbances likely to result in nest 

abandonment within the surrounding 600 ft. of the nest are not permitted from March 15 to August 15. 

The Forest Plan also includes a conservation strategy that consists of a system of reserves (Old Growth 

Habitat Reserves and other non-development LUD) and direction for managing the matrix between 

reserves. 

Steller sea lion – eastern DPS

The basic biological information for sea lions described above for the western DPS also applies to the 

eastern DPS. However, while western DPS sea lions are expected to rarely occur in the Analysis Area, 

eastern DPS sea lions are expected to regularly occur in the Analysis Area year-round. 

A recent minimum population estimate for the United States portion of the eastern DPS was 34,485 

(Allen and Angliss 2014). This estimate did not correct for animals that were at sea during the surveys. 

The eastern DPS increased at a rate of 4.18% per year between 1979 and 2010 (Allen and Angliss 2014). 

Pacific walrus and Lake Iliamna harbor seal

The Pacific walrus and Lake Iliamna harbor seal are included as sensitive species based on their listing as 

candidate species by the USFWS and NMFS, respectively (FSM 2672.11). The Pacific walrus inhabits the 

shallow continental shelf waters of the Bering and Chukchi Seas (Garlich-Miller et al. 2011) and does not 

occur in southeast Alaska. The NMFS has initiated a status review of the Lake Iliamna harbor seal in 

response to a petition to identify them as threatened or endangered as a distinct population segment 

(NOAA 2013). They are currently considered part of the Bristol Bay stock which does not occur in 

Southeast Alaska (Allen and Angliss 2014). There is no specific Forest Plan direction for these species. 

These species do not occur in the Analysis Area and no direct, indirect or cumulative effects are expected. 

They will not be addressed further. 

Environmental Consequences

Direct and Indirect Effects 

Direct and indirect effects occur from outfitter-guide activities and connected actions that can adversely 

affect individuals, their young, or their habitat. General disturbance effects on wildlife from recreational 

activities have been well documented, but not well quantified. The indirect impacts of recreation on 

wildlife are even less understood than the direct impacts (Cole and Landres 1995). Boyle and Sampson 

(1985) recognized that impacts were occurring, but acknowledged that management was hampered by the 

complexity of cause-and-effect relationships and the incompleteness of existing information. Taylor and 

Knight (2003) document similar lack of information on the area of influence from various recreational 

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activities. Tempel et al. (2008) compiled current research and summarized effects: 1) if an activity elicits a 

significant behavioral response from individuals, occurs frequently, and/or is widespread, long-term 

impacts to the reproduction and survival of individuals is possible; 2) if a large enough number of 

individuals is negatively affected by recreation, impacts at the population level can occur; 3) if impacted 

wildlife populations have important interactions with other species, community impacts are also possible. 

The significance and magnitude of any effect are related to the extensiveness, intensity, and timing of the 

activity. The vulnerability and rarity of the habitat, and its importance to a species, is also important (Cole 

and Landres 1995).

Direct effects from recreation include intentional or unintentional wildlife harassment, alteration of 

wildlife behavior, and displacement from food, water, and shelter (Leung and Marion 2000). According to 

Blanc et al. (2006), the main effect of disturbance is a change in behavior whether it is associated with 

movement and escape or not. Effects can be physiological or behavioral. Physiological effects include 

increased heart rate and respiration, increased oxygen consumption, increased body temperature, and 

increased metabolism (Gabrielsen and Smith 1995). Gill et al. (2001) state the decision to move away 

from disturbance or not is complex and dependent upon the quality of the habitat individuals are currently 

occupying, the distance to and quality of other suitable sites, the relative risk of predation, the density of 

competitors in alternative sites, and the investment required to establish a new territory. Indirect effects

include reduced health and fitness, reduced reproductive rates, increased mortality, and composition 

change (Leung and Marion 2000, Taylor and Knight 2003, Cole and Landres 1995). Many immediate 

disturbance responses appear to be short-term; however, little is known about the long-term effects of 

recreational disturbance on energy balance or survival rates. Indirect effects occur through normal 

recreation activities such as hiking, biking, hunting, and fishing where recreationists have the potential to 

negatively impact the physical environment (e.g., trampling vegetation, soil compaction, erosion, 

disturbances due to noise and motion, pollution, nutrition loading, and introduction of non-native invasive 

plant species). 

Boyle and Sampson (1985) reviewed 166 research articles of which 163 documented negative effects of 

recreational activity on wildlife: 52 on hiking and camping, 37 on boating, 27 on wildlife viewing and 

photography, 20 on off road vehicle use, 12 on snowmobile use, 8 on shore recreation and swimming, and 

7 on rock climbing. Leung and Marion (2000) state that the mere presence of visitors may harm wildlife 

by displacing them from essential habitats or disrupting their raising of young and that trails and 

campsites may cause a landscape fragmentation effect possibly interfering with movement of some 

animal species. Visitors hiking on trails may disturb wildlife, displacing them from trail corridors 

temporarily or permanently. Likewise, camping can disrupt normal wildlife activities, attract animals, or 

alter wildlife habitat through vegetation and soil impacts causing wildlife to avoid areas with campsites 

(Leung and Marion 2000, Boyle and Sampson 1985). Most vegetation damage occurs quickly at low and 

moderate levels of visitor use (Leung and Marion 2000). Monz (1998) found that campsites on beaches 

and on forest understory in Prince William Sound, Alaska, were very susceptible to vegetation loss. Cole 

and Landres (1995) discuss damage to vegetation and soils caused by human trampling during hiking, 

camping, fishing, and nature tours. Czech et al. (2000) identified outdoor tourism and recreation 

development as the fourth leading cause of population declines in threatened and endangered species. 

Direct and indirect effects vary by activity. Direct impacts on wildlife species from fishing include 

disturbance, entanglement with fishing lines and ingestion of lead sinkers. Indirect impacts associated 

with fishing include vegetation trampling, boating disturbance, and introduction of non-native species. 

Recreationists involved in wildlife viewing and photography intentionally approach wildlife which can be 

more disturbing than accidental encounters since encounters are generally more frequent and of longer 

duration (Boyle and Sampson 1985). Direct impacts from hunting include intentional approach and 

mortality. Indirectly hunting can affect population levels and structure (e.g. age and sex ratios). 

In light of the above information, all authorized outfitter-guide activities being considered under this 

management plan could cause disturbance to wildlife. In addition, recreational use is not distributed 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 189 - 
Chapter 3—Environmental Consequences

equally. Some areas have intensive disturbance whereas others have less intensive disturbance (Leung and 

Marion 2000). For example, at the LGAs, the larger groups of people and concentrated use of these areas 

could lead to increased disturbance and resource damage. Some factors affecting use in Southeast Alaska 

include distance from communities and ease of access such as protected anchorages, landing sites, and 

facilities (e.g., cabins).

Because quantitative evaluation of recreation effects was not possible owing to data limitations for many 

species, a risk ranking based upon the number of service days allocated to outfitter-guide activities and

the assumption that the risk of disturbing wildlife would increase as the number of days allocated to 

outfitter-guide activities increased. This is similar to the assumption in Gaines et al. (2003) that as 

recreational demand increases, effects on wildlife also increase over space and time and that increasing 

recreational use results in decreasing species persistence and maintenance of ecosystem processes and 

function. Each Alternative was ranked for each use area from 1 to 4 based on the allocated use. A ranking 

of 1 indicated the highest allocation and the highest estimated risk. When the allocation was the same 

between alternatives the alternatives received the same rank. 

All of the alternatives would allocate more service days to most use areas than have been used in the past. 

From 2010 through 2014, the highest number of service days reported for any year was in 2014 at 17,707 

service days for all use areas combined. This amounts to approximately 37% of the days allocated in 

Alternative 1, 22% of the days allocated in Alternative 2, 28% of the days allocated in Alternative 3, and 

14% of the days allocated in Alternative 4. However, there are eight use areas where the 2010-2014 

average annual actual use is greater than the allocation for one or more alternatives for one or more 

seasons, including Tracy Arm, Fords Terror, Gut Bay, Redoubt Lake, Kelp Bay, Pybus Bay, Idaho Inlet, 

and Port Althorp. 

Should outfitter-guide use rise to the levels allowed under any of these alternatives, it could result in a 

substantial increase in the impacts described for wildlife as outlined above. Some species, particularly 

those sensitive to disturbance from human activities, may experience negative consequences such as 

disruption of feeding, reproduction, or other factors affecting short-term population levels. Though this 

analysis has assumed full implementation of allocations under each alternative, impacts to human 

recreation and social factors would likely cause a re-evaluation of these allocations before major effects 

would occur to wildlife, particularly given the nature of some of the scoping comments received. 

Adaptive management may be implemented to change allocations or other outfitter/guide management 

based on monitoring, observations, or feedback we receive during implementation of this project. If it is 

included in the final decision, Adaptive Management should mitigate some of the effects to wildlife at 

high levels of use in particular use areas. 

Generally speaking, estimated disturbance to wildlife is greatest for Alternative 4, followed by 

Alternatives 2, 3 and 1, respectively. This is based solely on the number of days allocated under each 

alternative. However, alternative rankings vary by use area based on the objectives of the alternative and 

the land use designation of the use area (e.g. wilderness). Alternative 4 was ranked highest in allocated 

use in 42 of the use areas and second highest in the remaining six. Alternative 1 had a fairly even 

distribution of use areas in which it was ranked highest through lowest, while Alternative 2 was ranked 

second or third highest in all use areas. Alternative 3 was ranked lowest in allocated use in 29 use areas 

but never ranked highest in any. Alternative 3 maintains low use in remote use areas, but increases use 

overall compared to the No Action (Alternative 1) by concentrating higher amounts of use in a relatively 

few use areas. These use areas tend to be the ones that support the highest amount of current use. 

Management Indicator Species

Alexander Archipelago Wolf, Alternatives 1 - 4 

Wolves are an iconic species, highly sought after for wildlife viewing and occasionally for hunting. 

Wolves only occur in GMU 1 and therefore would only be affected by the alternative allocations in the 

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GMU 1 use areas. Based on the total service days allocated (all seasons) to use areas in GMU 1, 

Alternative 4 has the greatest risk for effects from disturbing wolves, followed by Alternatives 2, 1, and 3, 

respectively. Authorized activities would not affect important management components.

Wolf hunting is an authorized outfitter-guide activity only in Guide Use Area 01-05 within the Analysis 

Area. There is no difference between alternatives in how wolf hunts are managed. 

Occasional mortality due to guided harvest is anticipated under all four alternatives. Hunting effort and 

mortality from guided hunters is assumed the same across all alternatives. Harvest has the potential to 

affect wolf population levels and structure. However, current levels of effort and harvest by guided 

hunters is too small to constitute a population concern. No specific allocations are made for guided wolf 

hunting in any of the alternatives. 

Bald Eagle, Alternatives 1 – 4 

Primary direct and indirect effects to bald eagles associated with this project relate to disturbance of 

eagles at nest sites. Bald eagles may respond in a variety of ways when disturbed by human activities near 

nest sites. The severity of their response can be context dependent, relating to frequency and severity of 

the disturbance, type of disturbance, novelty of the disturbance and distance from the nest (Steidl and 

Anthony 1996, 2000). During the nest building period, eagles may inadequately construct or repair their 

nest, may expend energy defending the nest rather than tending to their young, or may abandon the nest, 

all of which can lead to failed nesting attempts. During the incubation and hatching period, human 

activities may startle adults or cause them to abruptly flush from the nest which can damage eggs or injure 

young. Prolonged absences of adults from their nests can jeopardize eggs by causing them to overheat or 

cool and fail to hatch. Young nestlings may die from hypothermia or heat stress if adults are forced away 

from the nest for an extended period of time. Eggs and juveniles are also subject to greater predation risk 

while they are unattended. If human activities disrupt the adults’ foraging and feeding schedule, the young 

may be malnourished, affecting their development and ultimate survival. Older nestlings may be startled 

by loud or intrusive human activities and prematurely jump from the nest before they are able to fly 

(USFWS 2009). Human activities that cause any of these responses and lead to injury, a decrease in 

productivity, or nest abandonment are considered disturbance and are thus a violation of the Bald Eagle 

Protection Act (USFWS 2009).

Steidl and Anthony (2000) studied the effects of recreational activity on bald eagles in interior Alaska. 

Eagle behavior changed substantially when campers camped for 24 hours 100 meters (approximately 330 

feet or minimum required by regulation) from a nest as opposed to camps 500 meters (1,640 ft) from the 

nest. Where humans were camped closer to active eagle nests, eagles spent less time taking care of 

themselves, their nests, and their young and more time away from the nest. Steidl and Anthony (2000) 

concluded that presence of humans near active bald eagle nests caused changes in behavior that could 

ultimately result in population-level impacts through reductions in offspring survival. 

No physical alteration of habitat is authorized under any alternative, so no impacts to habitat suitability 

are expected. Alternative 4 has the highest allocated service days and is likely to create the greatest 

disturbance to bald eagles of any alternative, followed by Alternatives 2, 3, and 1, respectively. While 

some use areas do not follow this general pattern of impact among alternatives, none are known to be 

particularly important to bald eagles relative to the other use areas. Generally, the same areas that receive 

the most use currently will see the most use under the different alternatives, but the degree of increase 

allocated is the difference. It is assumed that all applicable buffers and seasonal restrictions required by 

law will be followed. However, not all nest sites are known and inadvertent incursions are to be expected. 

In addition, sometimes disturbance can occur even when humans are beyond the 330-ft buffer because the 

impact distance and level of effect depends on whether the eagles can see and/or hear the activity from 

their nest and on how tolerant the birds are to human activity. Thus, occasional responses to disturbance 

by some individuals, but with no real interference with reproduction or foraging other than short term 

disturbance and/or displacement from foraging areas are expected from all alternatives. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 191 - 
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Recommendations for minimizing impacts to eagles are outlined in the Project Design and Mitigation

Measures section. 

Black Bear and Brown Bears, Alternatives 1-4 

Since habitat and disturbance factors are similar for both brown and black bears, the species were 

combined for effects analysis. Most research in Alaska focuses on brown bears, but available information 

on black bears supports similar habitat and disturbance. There are two main effects of permitted guide 

activities on bears: mortality associated with guided hunts and disturbance at key foraging areas such as 

grass flats in the spring and salmon streams in the fall. 

There is no difference between alternatives in how bear hunts are managed. The BBMS provides the 

primary guidance for guided brown bear hunt management, along with consultation with the ADF&G. 

For black bears, the ADF&G and the Forest Service will work together to set appropriate hunt allocations 

for guides based on a variety of factors including, but not limited to, estimated population size and trend, 

and the amount and locations of interest from guides. The hunt allocation process will take place 

independently of this NEPA analysis. Currently the Forest Service has determined that there is a 

competitive demand for guided black and brown bear hunting on the JRD (GMUs 1C and 1D). Therefore, 

no new bear hunts would be approved until such time as a prospectus is developed. There is no current 

timetable for the development of a prospectus. 

Mortality due to guided harvest is anticipated under all four alternatives. Hunting effort and mortality 

from guided hunters is assumed the same across all alternatives. Harvest has the potential to affect bear 

population numbers and structure (e.g. trophy hunters target large, dominant males). Current information 

indicates that under the current ADF&G season and harvest limits, population numbers are meeting 

ADF&G’s objectives. However, indirect effects on bear population structure may be occurring. Bears 

have a hierarchical society with large males being the most dominant. Selectively targeting this segment 

of the population may have indirect effects by changing foraging efficiency and population dynamics (e.g. 

see Gosselin et al. 2015, Gende and Quinn 2004). Most black bear harvest in GMU 1 is by resident and 

nonresident non-guided hunters. Guided black bear hunting constitutes a small percentage (3%) of the 

overall GMU1 actual use and between 0% and 7% of the actual use in GMU 1 use areas. Most brown 

bear harvest is by non-resident, guided hunters. Brown bear hunting constitutes about 6% of overall guide 

use in the Analysis Area and between 0 and 76% of use in individual use areas. No specific allocations are 

made for guided bear hunting in any of the alternatives. 

One of the decisions to be made, which would apply to all alternatives, is whether the Forest Service will 

allocate guided brown bear hunts in GMU 4 based on the recommended number of hunts (by GUA and 

season) in the BBMS. Additionally, there are a number of actions proposed that would change how the 

Forest Service administers big game outfitter/guiding permits (BBMS pp. 1-7). Two of these actions 

mirror the BBMS (bullets one and five). Authorizing brown bear hunts by GUA and season could create 

incentives for guides to not take clients hunting in multiple GUAs because it counts as multiple hunts 

toward the BBMS. This could reduce the percentage of successful hunts and indirectly reduce bear 

mortality. Currently, guides are limited in their total number of hunts, but not on the number of hunts they 

are authorized within their permitted GUAs. Theoretically, they could use all authorized hunts in one 

GUA or take each client hunting in each of their authorized GUAs. More strictly managing the number of 

hunts per GUA and season would meet the recommendations of the BBMS and may benefit bears by 

reducing the harvest. 

The remaining actions are primarily administrative in nature, although some could indirectly affect bears 

by changing guided hunt success rates. For example, a prospectus could focus on providing a variety of 

hunt types, such as muzzle-loaders or archery that might have a lower success rate. However, analysis of 

any such change is speculative at this time because the specifics of the prospectus are unknown. The 

action to rescind the “Outfitter and Guide Change in Ownership Direction 2009” would not likely affect 

Chapter 3 - 192 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

bears because, now that the numbers of brown bear hunts and guides have been reduced to the BBMS 

recommendations, it is no longer needed. 

Aside from mortality due to harvest, primary direct and indirect effects to bears are related to disturbance 

of bears by the presence of people in their habitats. Outfitter-guide use under all alternatives has the 

potential to disturb or displace bears which can alter social patterns and affect energy balance and overall 

bear fitness or survival. 

The primary concern for bears is disturbance at grass flats during the late spring season and salmon 

streams in the fall. In spring, bears are exiting their dens and foraging on the first available food which is 

concentrated along saltwater, particularly in estuary habitats. This is prime season for hunting bears, and 

they are a highly sought after species for viewing during remote setting nature tours. In addition, 

freshwater fishermen are focusing on many of these same areas. Similarly in late summer and fall when 

the bears congregate in riparian areas along salmon streams, hunters, nature tours, and fishers focus on the 

same areas. Guided sports fishermen looking for trout or salmon in late summer or fall are likely to 

encounter bears, potentially disturbing the bears, causing stress and reducing their foraging efficiency. 

These encounters can also lead to potential defense of life and property mortalities in bears. As guides 

work to spread their operations out to reduce human encounters, this may leave few high quality areas 

undisturbed. This may cause individual and population level effects on bears such as displacement, loss of 

foraging time, nutritional stress, increased competition, and greater risk of predation (i.e., by brown bears 

on black bears, or black bear boars on cubs) (Olson 1997, Hilderbrand et al. 1999, White et al. 1999, 

Crupi 2003). However, it is difficult to quantify the degree to which the presence of people recreating 

within bear habitats will disturb individual bears or affect long-term population viability. 

Brown bears occur throughout the Analysis Area and the general risk of disturbance effects based on total 

allocated service days are greatest under Alternative 4, followed by alternatives 2, 3, and 1. Brown bear 

guided hunts are authorized and occur in GUAs 01-03 and 01-05 as well as all GUAs in GMU 4. Use 

areas with higher levels of guided brown bear hunts tend to be in areas with lower overall allocated use. 

Focusing on the concern for disturbing bears by multiple user groups during late spring and fall when 

they are most concentrated and vulnerable, Alternative 4 is expected to have the greatest risk of 

disturbance because it has the most allocated use during the late spring and fall seasons in the use areas 

where guided brown bear hunting occurs; followed by Alternatives 1, 2, and 3. Note that Alternative 1 

does not separate allocations into early and late spring seasons, so all use could occur during the late 

spring season. These rankings reflect all spring use for Alternative 1 occurring during late spring. Based 

on current use patterns this is reasonable because only about 5% of current use occurs during the early 

spring season. 

Black bears are limited to GMU 1 and therefore would only be affected by the alternative allocations in 

the GMU 1 use areas. Based on the total service days allocated (all seasons) to use areas in GMU 1, 

Alternative 4 has the greatest risk for effects from disturbing black bears, followed by Alternatives 2, 1, 

and 3, respectively. Alternatives 1 and 2 are very similar (14,051 and 14,910 service days, respectively). 

Focusing on GUAs 01-03 and 01-05, which are the only areas within the Analysis Area where black bear 

guided hunts are authorized, Alternative 4 again has the greatest risk during the Late Spring and Fall 

seasons in the use areas within these GMAs; followed by Alternatives 1, 2, and 3. Under all alternatives, 

GUA 01-05 has a relatively high level of overall allocated use during late spring and fall seasons, which 

could indicate a high level of disturbance to black bears from all activities.

Effects from all four alternatives are expected to be moderate, with individuals noticeably affected and 

some long-term consequences to population structure from harvest mortality and repeated disturbance at 

high quality habitat sites. All four alternatives will result in mortality due to harvest of black bears. 

Generally, Alternative 4 would result in the greatest risk to bears, while Alternative 3 would result in the 

least risk. All alternatives allocate total use well above the current actual use which could result in greater 

disturbance to bears if actual use increases to allocation levels.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 193 - 
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Mountain goat, Alternatives 1 - 4 

The main effect of permitted guide activities on mountain goats is disturbance and mortality associated 

with guided hunts. Most shoreline based activity is far enough away from goats that disturbance is 

unlikely, except possibly during winter when goats are at lower elevation and may be close to shoreline 

areas. The mountain goat hunting season occurs during the Summer and Fall seasons defined in this 

analysis, although almost all guided hunts occur during the Fall season. 

There is no difference between alternatives in how mountain goat hunts are managed. There are no 

specific guided goat hunting allocations for any alternative. The Forest Service and the ADF&G will work 

together to set appropriate hunt allocations for guides based on a variety of factors including, but not 

limited to, estimated population size and trend, and the amount and locations of interest from guides. The 

hunt allocation process will take place independently of this NEPA analysis. Currently the Forest Service

has determined that there is a competitive demand for guided mountain goat hunting in the Analysis Area. 

Therefore, no new goat hunts would be approved until such time as a prospectus is developed. There is no 

current timetable for the development of a prospectus. 

Mortality due to guided harvest is anticipated under all four alternatives. Hunting effort and mortality 

from guided hunters is assumed the same across all alternatives. Harvest has the potential to affect goat 

population levels. However, the hunts are closely managed by ADF&G and at current levels of effort and 

harvest, including guided hunters, populations numbers are within ADF&G’s objectives. 

Alternative 4 has the highest overall risk of disturbance effects on goats based on the most overall 

allocated guide use within the range of mountain goats (GMU 1and Baranof Island); followed by 

Alternatives 2, 3 and 1. Considering just the winter use in this area, Alternative 4 again has the highest 

risk, and Alternatives 2 and 3 have equal risk as they have equal allocations. Alternative 1 does not 

allocate any use during the winter season. 

Effects from all four alternatives are expected to be moderate. All four alternatives will result in mortality 

due to harvest of goats. Non-hunting related disturbance is expected to be minimal because goats are in 

alpine habitat during the high use Summer season and there is little use during the Winter season when 

goats may be in the shoreline zone. Generally, Alternative 4 would result in the greatest risk of 

disturbance to goats, while Alternative 3 would result in the least risk. 

Sitka black-tailed deer, Alternatives 1 - 4 

Direct and indirect effects to deer include mortality as a result of guided harvest and disturbance that may 

cause stress to the animals, increase metabolic costs due to stress and energy costs of flight, temporary 

displacement, and reduce foraging efficiency. However, it is difficult to quantify the degree to which the 

presence of people recreating within deer habitats will disturb individual deer or cause long-term 

population consequences. No physical alteration of habitat is authorized under any alternative, so no 

impacts to habitat suitability are expected. Some minor indirect habitat effects such as trampling of 

vegetation are expected but should be inconsequential compared to the available habitat. 

There is no difference between alternatives in how deer hunts are managed. There are no specific guided 

deer hunting allocations for any alternative. The Forest Service and the ADF&G will work together to set 

appropriate hunt allocations for guides based on a variety of factors including, but not limited to, 

estimated population size and trend, and the amount and locations of interest from guides. The hunt 

allocation process will take place independently of this NEPA analysis. There is not a competitive demand 

for guided deer hunting in the Analysis Area. 

Mortality due to guided harvest is anticipated under all four alternatives. Hunting effort and mortality 

from guided hunters is assumed the same across all alternatives. Harvest has the potential to affect deer 

population levels and structure. However, guided hunting for deer is generally incidental to or in 

combination with hunts for other big game species such as bear or goats. Overall deer hunting accounts 

Chapter 3 - 194 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

0.5% of guided activities in the Analysis Area and ranges from 0% to 29% by use area. Guided deer 

harvest contributes very little to overall deer harvest in the Analysis Area. 

Effects from all four alternatives have the potential to be moderate, with individuals noticeably affected 

due to harvest and repeated disturbance. All four alternatives will result in mortality due to harvest of 

deer. Overall, Alternative 4 would result in the greatest risk of disturbance to deer, followed by 

Alternatives 2, 3, and 1. All alternatives allocate total use well above the current actual use which could 

result in greater disturbance to deer if actual use increases to allocation levels.

Vancouver Canada goose, Alternatives 1 - 4 

No physical alteration of habitat is authorized under any alternative, so no impacts to habitat suitability 

are expected. Some minor indirect habitat effects such as trampling of vegetation are expected but should 

be inconsequential compared to the available habitat. 

There is no difference between alternatives in how guided goose hunts are managed. There are no specific 

guided goose hunting allocations for any alternative. A low level of mortality due to guided harvest is 

anticipated under all four alternatives. Hunting effort and mortality from guided hunters is assumed the 

same across all alternatives. Guided hunting for geese is generally incidental to or in combination with 

hunts for big game species such as bear or goats. Overall waterfowl hunting accounts for less than 0.1% 

of guided activities in the Analysis Area. Guided waterfowl harvest is inconsequential in relation to 

overall waterfowl harvest in the Analysis Area. 

Geese would experience the direct and indirect effects associated with disturbance under all of these 

alternatives. Because Vancouver Canada geese remain in the Analysis Area year round, and the seasons, 

as defined for this project, do not correspond to their biological cycle, total allocations were used to rate 

the alternatives for likelihood to cause disturbance effects to geese. Thus, Alternative 4 is likely to cause 

the most disturbance effects, followed by alternatives 2, 3 and 1. 

In sites where human use is high, geese may stop using those sites if disturbance is too great. Given that 

most guided use occurs during the summer, effects to wintering geese should be limited. However, geese 

are more concentrated in winter so a single event could cause greater disturbance. Impacts to geese are 

expected to be minor under all alternatives. 

Other Species of Concern

Harbor seals, Alternatives 1 - 4 

No physical alteration of habitat is authorized under any alternative, so no impacts to habitat suitability 

are expected.

The primary concerns for harbor seals are disturbance related to boat activity and disturbance of seals at 

haul-outs. Marine waters are not within Forest Service jurisdiction but the Forest Plan requires permittees 

to follow all regulations (in this case the Marine Mammal Protection Act [MMPA]) including NMFS

guidelines. While this analysis assumes all guides adhere to the MMPA and NMFS guidelines, there is 

still a chance that their activities could result in minor changes in behavior (e.g. alert, change direction) 

beyond the 100 yard regulated stand-off distance. There is no data on the number of boat trips made by 

permitted guides but for this analysis it is assumed to correlate with the allocation, i.e. the higher the 

allocation, the more boat trips. Thus, Alternative 4 would create the greatest risk for disturbing seals 

followed by alternatives 2, 3 and 1. Tracy and Endicott Arms are an area of particular concern because 

seals haul-out on icebergs and the area receives substantial tourism associated vessel traffic. Tracy and 

Endicott Arms include parts or all of Use Areas 01-05B, D, E and F. Williams Cove, a LGA in Tracy Arm, 

receives “very high” use (average 770 service days per year) under the current plan. Alternatives 2, 3, and 

4 would increase the allocation in Use Area 01-05B, which includes the Williams Cove LGA, and thus 

increase the risk of disturbing seals. There are no LGAs within 100 yards of harbor seal known haul-outs, 

but because of the wide-spread distribution of seals and their haul-outs, many LGA and general use sites 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 195 - 
Chapter 3—Environmental Consequences

are within sight and sound distance. While the seals provide a valuable visitor viewing experience, care 

will need to be exercised when accessing and using these sites. 

Effects to seals under all alternatives are expected to be minor. Some small changes in behavior by seals 

are possible (e.g. increases in alertness, changes in direction while swimming) but because 

outfitter/guides will be required to follow NMFS regulations and guidelines they are not expected to rise 

to the level of take. 

Seabirds, Alternatives 1 - 4 

No physical alteration of habitat is authorized under any alternative, so no impacts to habitat suitability 

are expected.

Guided wildlife viewing tours most certainly pass by and observe some of these colonies, but many, if not 

most, occur at areas where landing a boat is difficult or dangerous, so there is likely little foot traffic in 

these areas. As with other species Alternative 4 has the greatest risk of causing disturbance to seabird 

nesting colonies based on overall allocations, followed by alternatives 2, 3 and 1. However, the risk to 

individual colonies could vary by alternative. Alternative 4 allocates the most service days in almost all 

use areas, but service day allocation ranking for the other three alternatives varies by use area. In addition, 

the risk will vary depending on which species inhabit the colony. Overall, the available literature suggests 

that the Forest Plan stand–off distance of 250 meters should protect seabird colonies from substantial 

disturbance. 

Effects to seabirds under all alternatives are expected to be negligible. Some minor disturbance is likely 

but because many colonies are hard to access and outfitter/guides will be required to follow Forest Plan 

250 meter buffer distances no measureable effect is expected. 

Migratory Birds, Alternatives 1 – 4 

Boyle and Sampson (1985) summarized recreational impacts on wildlife in a review of 166 articles, 61% 

of which assessed birds as study subjects. The studies covered a wide range of recreation types including 

camping, hiking, boating, motorized and nonmotorized use. Approximately 73% of those studies found 

negative impacts to birds, roughly 23% found no impacts, and about 4% found benefits to birds. Species 

that benefitted were habitat generalists, particularly those able to take advantage of human foods at 

campgrounds. Negative impacts included disruption of breeding activities, flushing birds away from 

foraging areas, and changes to habitat such as trampling and pollution. 

No physical alteration of habitat is authorized under any alternative, so no impacts to habitat suitability 

are expected. Direct effects to birds that may result from implementation of this project are mostly limited 

to disturbances that adversely affect individuals or young. Migratory birds are a diverse group with 

widely varying habitat needs and sensitive time periods in the Analysis Area. Many migratory bird 

species can be found in the beach fringe at some time of year. Some prefer sand/gravel beaches and tide 

flats, others rocky beaches, and some are only found in the upland shrubs and forest habitats. Some may 

be there year round, while others may be there only briefly during migration. Some are plentiful and 

widely distributed while others are rare and have a patchy distribution. Some species are more sensitive to 

disturbance than others. All these factors affect the likelihood and intensity of disturbance effects.

Migratory birds would be most susceptible to disturbance from recreational activities occurring during the 

nesting/fledging period which generally begins in mid-April and ends about mid-July when young birds 

have fledged, which corresponds to the Late Spring and Summer seasons defined for this project. Summer 

has the highest rates of guided use in the project area. Nesting birds that are repeatedly disturbed by 

people could abandon nesting attempts or abandon their nests. However, based on current use patterns, 

very few sites are expected to see sufficient repeated visits such that nest abandonment is likely. These 

impacts would be confined to a fraction of the total habitat available across the Analysis Area. 

Chapter 3 - 196 - Shoreline II Outfitter/Guide DEIS
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Based on allocated service days during Late Spring and Summer seasons, Alternative 4 poses the highest 

risk of impact to migratory birds because it allocates the most days and therefore the greatest risk for 

disturbance from guides and their clients. Following Alternative 4, in order of decreasing risk are 

Alternatives 2, 3, and 1. Effects to migratory birds are expected to be minor under all alternatives, and at 

worst could include disturbance leading to nest abandonment at high use sites.

Threatened and Endangered Species

Humpback whale, Alternatives 1 – 4 

No physical changes to the marine environment are expected under any alternative. No habitat alterations 

or other impacts to whale prey species are expected. For all alternatives, humpback whales would be 

exposed to boating activities including noise and the physical presence of vessels. 

The number of boat trips associated with each alternative is unknown but assumed to be proportional to 

the service days allocated. Thus, Alternative 4 would have the most trips, followed by alternatives 2, 3, 

and 1. Alternative 1 is the No Action alternative and represents the baseline condition. However, even 

under this alternative there is considerable room for additional boat traffic because currently (2010 to 

2014 average), overall actual use is only about 32% of the allowable allocation with a generally 

increasing trend. Therefore, all alternatives could increase the likelihood of disturbance of humpback 

whales compared to the existing condition. In addition all alternatives could increase the likelihood of a 

vessel collision with humpbacks. 

The Forest Plan requires that all permittees follow the laws and regulations for preventing take under the 

ESA and MMPA. These regulations have been included as “design criteria” in the Plan and included in 

permit stipulations. Thus, this boat activity may cause some individual whales to experience changes in 

their behavioral states (e.g. slight avoidance), but are not likely to rise to the level of take and are 

considered insignificant. Based on mitigation measures to minimize exposure to vessel activities, and the 

lack of a known vessel strike or mortality from Forest Service permitted activities in the Analysis Area, 

the probability of a vessel associated with FS permitted activities under any of the alternatives, striking a 

humpback whale is sufficiently small as to be discountable.

Steller Sea Lion – western DPS, Alternatives 1 – 4 

No physical changes to the marine environment are expected under any alternative. No habitat alterations 

or other impacts to sea lion prey species are expected. For all alternatives, the noise and physical presence

of boats may cause avoidance responses in sea lions and could increase the likelihood of a vessel collision 

with sea lions. However, Steller sea lions are agile and accustomed to vessel traffic so it is unlikely they 

would collide with a boat. In addition, there is potential for disturbance of hauled-out sea lions if vessels 

or shore based groups get too close. 

The number of boat trips associated with each alternative is unknown but assumed to be proportional to 

the service days allocated. Thus, Alternative 4 would have the most trips, and the most potential risk, 

followed by alternatives 2, 3, and 1. Alternative 1 is the No Action alternative and represents the baseline 

condition. However, even under this alternative there is considerable room for additional boat traffic 

because currently (2010-2014 average), overall actual use is only about 32% of the allowable allocation 

with a generally increasing trend. Therefore, all alternatives could increase the likelihood of disturbance 

of Steller sea lions compared to the existing condition. 

Encounters with western DPS sea lions would be uncommon given the low number of western DPS sea 

lions expected to be in the Analysis Area and large size of the area involved. 

Sea lion haul-outs are distributed throughout the Analysis Area. For the most part, they do not lend 

themselves to viewing from onshore sites because their rugged shoreline characteristics prevent easy 

access. When viewing sea lions from a boat or from shore, guides are required to follow ESA and MMPA 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 197 - 
Chapter 3—Environmental Consequences

regulations to prevent take. Therefore, although some guided activities permitted by all alternatives of this 

project may cause minor avoidance behaviors by sea lions, they are not likely to rise to the level of take. 

Of the nine critical habitat sites in the Analysis Area, five are in exposed locations along the outer coast of 

Baranof, Chichagof, and Yakobi islands and are in use areas that receive low guided use. Although some 

guided use certainly passes by these sites, their location protects them from much use due to tough 

conditions (waves, lack of protected anchorages, etc.). On the other hand, the Point Lull critical habitat 

haul-out is within Use Area 04-04B (Kelp Bay) which receives the highest use of any use area. However, 

the onshore use sites are not near the haul-out. Overall, Alternative 4 would allocate the most use to the 

use areas that contain sea lion critical habitat, followed by alternatives 2, 3 and 1. No LGAs are within 3 

km of any of the critical habitat sites. 

Determinations

All alternatives for the Shoreline Outfitter/Guide Project may affect but are not likely to adversely affect 

the humpback whale and western DPS of the Steller sea lion. Disturbance from boat traffic could cause 

minor behavioral changes in a small number of individuals of these populations. 

All alternatives for the Shoreline Outfitter/Guide Project will have no effect on Steller sea lion critical 

habitat. No project activities will occur in or adjacent to critical habitat.

Table 3-34: Summary of determinations for threatened and endangered species for the Shoreline II 

Outfitter/Guide EIS Project

Name Distinct Population 

Segment ESA Status

Determination 1

No Action Proposed 

Action

Humpback whale

Megaptera novaeangliae Endangered Not likely to 

adversely affect

Not likely to 

adversely 

affect

Steller sea lion

Eumetopias jubatus Western Endangered Not likely to 

adversely affect

Not likely to 

adversely 

affect

Critical habitat No effect No effect

1

 - Possible determinations for T&E species and Designated Critical Habitat: “no effect,” “not likely to adversely affect,” 

or “likely to adversely affect.” Possible determinations for Proposed Species and Proposed Critical Habitat: “no effect,” 

"not likely to jeopardize proposed species, or adversely modify proposed critical habitat," or "likely to jeopardize 

proposed species, or adversely modify proposed critical habitat." (FSM 2672.42, Supplement R-10-2600-2005-1)

Sensitive Species

Aleutian tern, Alternatives 1 - 4 

None of the alternatives would affect tern habitat. No disturbance to nesting colonies would occur 

because they do not exist in the Analysis Area. Individuals may occasionally occur in the Analysis Area, 

but would be rare, so no impacts from any alternative are expected for Aleutian terns. 

Black oystercatcher, Alternatives 1 - 4 

Black oystercatchers spend essentially their whole lives in the shore zone and thus, are susceptible to 

disturbance from the types of activities permitted by this project. Documented disturbance impacts 

include disruption of courtship and breeding activities, abandonment of nests or fledglings, trampling or 

swamping of nests, reduction in the amount of parental care of young, reduction in the amount of time 

spent foraging and foraging success, increased predation, and/or desertion of otherwise suitable habitat 

(Tessler et al. 2007, Goldstein et al. 2009, Andres and Falxa 1995, Chatwin 2010). Andres (1998) 

contends that regular human disturbance results in very low black oystercatcher density. Conversely, 

Chapter 3 - 198 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Morse et al. (2006) found no evidence that recreation affected productivity in Kenai Fjords National Park, 

although the level of disturbance was low and started after peak of hatch. Poe et al. (2009) found that 

backcountry campers and black oystercatchers in Prince William Sound often selected similar habitat, but 

the distance between nest territories and camp sites was still large. It is unknown if people and black 

oystercatchers select similar habitats in northern southeast Alaska.

Alternative 4 would have the greatest risk of disturbance impacts on black oystercatchers since it would 

allocate the most service days to outfitter/guides. The remaining alternatives, in order of greatest to least 

risk of impact, are Alternatives 2, 3, and 1, respectively. Effects are expected to be infrequent under all 

alternatives. These effects will consist of disturbance of breeding, foraging, and wintering birds and 

possible destruction of nests. Regular human use, such as that suggested by Andres (1998), would occur 

in relatively few, localized areas such as some Large Group Areas and a few other popular sites. Most 

guided activity is allocated to and occurs during the summer season, so most disturbance would likely 

occur after eggs have hatched, similar to the situation described by Morse et al. (2006). The Gulf of 

Alaska shorelines, where the most extensive habitat and highest densities are expected, receive relatively 

little guided use. Overall impacts to populations should be low under all alternatives. 

Dusky Canada goose, Alternatives 1 - 4 

Disturbance and mortality to dusky Canada geese is possible, but so unlikely as to be negligible under any 

alternative. They do not generally stop in southeast Alaska on their migrations and if they do, it’s for a 

short period. Waterfowl hunting is a permitted activity under all alternatives but is usually conducted in 

combination with or incidental to other hunts. Only 14 service days of waterfowl and small game hunting 

were reported from 2010-2014. Hansen (1962) reported that only four dusky Canada geese out of 1,129 

banded on the Copper River Delta from 1952-1960 were harvested in southeast Alaska, and only one of 

those was in the Analysis Area. 

Kittlitz’s murrelet, Alternatives 1 - 4 

No physical effects to nesting habitat and no disturbance effects to nesting birds are expected. Nesting 

occurs well away from the shore zone. It is possible some birds could be disturbed in the marine 

environment while foraging as guides transport clients to use areas. Based on the low density of birds in 

the Analysis Area, the expected low rate of encounters with permitted boats, and the ability of murrelets 

to maneuver and avoid boats, impacts to Kittlitz’s murrelets are expected to be inconsequential under all 

alternatives. 

Queen Charlotte goshawk, Alternatives 1 - 4 

None of the authorized outfitter-guide activities would alter productive old-growth habitat. Instead, 

effects would come from human disturbance in close proximity to nesting and foraging goshawks. 

Goshawk nests are usually in heavily forested habitats, and since most recreation sites are along the 

shorelines, lakes, and rivers, recreation disturbance to known or unknown goshawk nests is expected to be 

uncommon. This disturbance is also likely to be temporary and localized rather than continuous. This type 

of disturbance could temporarily displace from nesting and foraging activities but is not expected to cause 

nest abandonment. Forest Plan standards and guidelines to minimize disturbance during the nesting 

season will be included as permit design stipulations.

Alternative 4 poses the highest risk of disturbance to goshawks because it allocates the most service days. 

Following Alternative 4, Alternatives 2, 3, and 1 would pose sequentially less risk based on allocated 

service days. Effects to goshawks are expected to be minor under all alternatives, and at worst could 

include disturbance to birds near nests that may temporarily disrupt breeding or brood rearing activities. 

Steller sea lion – eastern DPS, Alternatives 1 - 4 

Impacts to the eastern DPS Steller sea lions are expected to be the same as those described for the western 

DPS, except that eastern DPS sea lions are widely distributed and plentiful in the Analysis Area. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 199 - 
Chapter 3—Environmental Consequences

Encounters with vessels conducting project related activities would be likely. However, sea lions are agile 

and used to vessel traffic, and permittees are required to follow NMFS regulations pertaining to take 

under the MMPA so these interactions should not result in take under the MMPA. 

Determinations

All alternatives for the Shoreline II O/G EIS Project will have no impacts to Aleutian terns and dusky Canada 

geese. Individual may rarely occur in the Analysis Area but any disturbance would be discountable. 

All alternatives for the Shoreline II Outfitter/Guide EIS Project may impact individuals, but not likely to 

result in a loss of viability in the Planning Area, nor cause a trend toward Federal listing for the black 

oystercatcher. Some individuals may be disturbed by guided activities in nesting and foraging areas, but 

disturbance is expected to be temporary and localized. 

All alternatives for the Shoreline II Outfitter/Guide EIS Project will have no impacts to the Kittlitz’s murrelet. 

Encounters between Kittlitz’s murrelets and authorized permittees is expected to be so rare as to be 

discountable. 

All alternatives for the Shoreline II Outfitter/Guide EIS Project may impact individuals, but not likely to 

result in a loss of viability in the Planning Area, nor cause a trend toward Federal listing for the Queen 

Charlotte goshawk. Some individuals may be disturbed by guided activities in nesting and foraging areas, 

but they are expected to be temporary and localized. 

All alternatives for the Shoreline II Outfitter/Guide EIS Project may impact individuals, but not likely to 

result in a loss of viability in the Planning Area, nor cause a trend toward Federal listing for the Steller sea 

lion – eastern DPS. Boat traffic could cause minor changes in behavior but is not expected to result in 

take under the MMPA. A population level effect is not expected. 

Table 3-35: Summary of determinations for sensitive species for the Shoreline II Outfitter/Guide EIS Project

Species

Determination 1

No Action – 

Alternative 1

Proposed Action – 

Alternative 2 Alternative 3 Alternative 4

Aleutian tern No impacts No impacts No impacts No impacts

Black oystercatcher May impact 

individuals

May impact 

individuals

May impact 

individuals

May impact 

individuals

Dusky Canada goose No impacts No impacts No impacts No impacts

Kittlitz’s murrelet No impacts No impacts No impacts No impacts

Queen Charlotte goshawk May impact 

individuals

May impact 

individuals

May impact 

individuals

May impact 

individuals

Steller sea lion – eastern 

DPS

May impact 

individuals

May impact 

individuals

May impact 

individuals

May impact 

individuals

1

 Potential determinations for Sensitive Species: "no impacts," "beneficial impacts," "may impact individuals, but not

likely to result in a loss of viability in the Planning Area, nor cause a trend toward federal listing," or "likely to result in a 

loss of viability in the Planning Area, or in a trend toward federal listing." (FSM 2672.42 Supplement R-10-2600-2005-1)

Cumulative Effects

Cumulative effects result from the incremental impact of the outfitter-guide activities added to other 

relevant past, present, and reasonably foreseeable future actions. The list of past, present, or foreseeable 

future projects that may contribute cumulative effects for wildlife is long, and contains a wide variety of 

influences such as timber sales, salvage harvest, restoration projects, road closures and maintenance, 

recreation site maintenance and improvements, land exchanges, guided and unguided recreational 

activities, recreational use on non-Forest Service ownerships within the Analysis Area, flight-seeing tours 

Chapter 3 - 200 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

and marine based tours not within Forest Service jurisdiction, consumptive use of wildlife, and others. All 

past human endeavors and natural events within the Analysis Area created the baseline or existing 

conditions of which the most pertinent information to this project analysis is described for each species in 

the Affected Environment section. Past development activities have altered habitats, generally reducing 

habitat suitability for most the species addressed here. Timber sales and urban development have had 

substantial impacts to habitat within the Analysis Area. The Forest Plan estimates that 72% - 100% of old 

growth habitat is expected to remain within the various biogeographic provinces of Analysis Area after 

100 years under the selected alternative (USDA FS 2008b, 3-201). This estimate includes all ownerships. 

Shorelines are mostly unaltered except around communities. There is no estimate on cumulative changes 

to shoreline habitats within the Analysis Area. The direct and indirect effects analysis indicates that 

habitat loss is not a substantial impact of this EIS. Although a few isolated locations may see minor 

habitat degradation from trampling and similar indirect effects, this project is not expected to contribute 

substantially to the cumulative loss of habitat for wildlife species addressed in this analysis. 

Activities such as guided and unguided recreational activities, recreational use on non-Forest Service

ownerships within the analysis boundary, flight-seeing tours and marine based tours not within Forest 

Service jurisdiction, and consumptive use of wildlife may disturb wildlife similarly to the Direct and 

Indirect effects described in this EIS. The amount of unguided and unregulated use is unknown. The 

Forest Plan acknowledges that many local residents engage in dispersed recreation activities on National 

Forest and adjacent saltwater, but accurate data on this type of use are difficult to obtain and estimates 

tend to either underestimate the nature and extent of much of this use or overcompensate in inconsistent 

ways (USDA FS 2008b, 3-373). This project will cumulatively add to the level of wildlife disturbance. As 

described in the Direct and Indirect effects section, the degree of disturbance is hard to quantify and 

varies between species and even individuals. These effects were similar across species and alternatives 

but vary in likelihood, extent, and intensity. The alternative allocating the highest number of service days 

(Alternative 4) would pose the greatest risk of cumulative disturbance impact to wildlife, followed by the 

other alternatives 2, 3, and 1 in descending order of service day allocations. 

Consumptive use of wildlife (i.e. hunting and trapping) can reduce wildlife populations, but levels are 

regulated by the ADFG Board of Game and the Federal Subsistence Board to maintain sustainable 

population levels. Any conservation concerns would be addressed by emergency closure order or 

regulatory changes. The most substantial cumulative effects of this project on wildlife are guided harvest 

of big game species, particularly brown bears and mountain goats. Outfitter/guides permitted under this 

project would harvest a substantial portion of the total harvest of these two species within the Analysis 

Area. There are no differences between alternatives in management and expected harvest for big game 

species, so there would be no differences in expected cumulative effects between alternatives. 

Threatened and Endangered Species 

Cumulative Effects

Cumulative effects for ESA compliance include the effects of future State or private activities but do not 

include other Federal activities because those actions are subject to future consultation. 

This project would contribute cumulative marine traffic and noise effects to ongoing and future activities 

including visitor use/tours on State and private lands, or solely in the marine environment, commercial

and recreational fishing, and any other marine activities. Tourism is anticipated to increase. Logging on 

State and private lands is expected to increase following the Sealaska Land Exchange. The current general 

trend is to use barges to transport logs, but companies are still allowed to raft logs with the correct 

permits. Barges generally maintain a constant speed and consistent course which is thought to be less 

disruptive to marine mammals than vessels that travel faster and vary their speed and direction. Increases 

in recreational and logging activities would add to current marine traffic, associated acoustic disturbance, 

and chance of vessel strikes. The magnitude of these increases is unknown. Fishing, both commercial and 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 201 - 
Chapter 3—Environmental Consequences

recreational, would continue and could lead to additional fisheries related injuries and deaths as described 

in Allen and Angliss (2014). 

This EIS is not expected to contribute to the cumulative loss of habitat for humpback whales and western 

DPS Steller sea lions, but is expected to contribute to the cumulative vessel traffic including noise, vessel 

avoidance and ship strike. The cumulative effects with implementation of any of the action alternatives of 

this EIS are not expected to rise to the level of take. 

Subsistence 

Introduction

“Subsistence” means different things to different people, but this analysis focuses on the legal description 

of subsistence in Title VIII of ANILCA (Public Law 96-487). Section 803 of ANILCA defines subsistence 

use as:

the customary and traditional uses by rural Alaska residents of wild renewable resources for direct, 

personal, or family consumption as food, shelter, fuel, clothing, tools, or transportation; for the making 

and selling of handicraft articles out of non-edible byproducts of fish and wildlife resources taken for 

personal or family consumption; for barter, or sharing for personal or family consumption; and for 

customary trade.

With regard to consumptive uses, Section 804 of ANILCA states:

[t]he taking on public lands of fish and wildlife for non-wasteful subsistence uses shall be accorded

priority over the taking on such lands of fish and wildlife for other purposes. Whenever it is necessary

to restrict the taking of populations of fish and wildlife on such lands for subsistence uses in order to

protect the continued viability of such populations, or to continue such uses, such priority shall be

implemented through appropriate limitations based on the application of the following criteria:

1. customary and direct dependence upon the populations as the mainstay of livelihood;

2. local residency; and

3. the availability of alternative resources

ANILCA also discusses project level considerations of subsistence. Section 810 states:

In determining whether to withdraw, reserve, lease, or otherwise permit the use, occupancy, or 

disposition of public lands under any provision of law authorizing such actions, the head of the 

Federal agency having primary jurisdiction over such lands or his designee shall evaluate the effect of 

such use, occupancy, or disposition on subsistence uses and needs, the availability of other lands for 

the purposes sought to be achieved, and other alternatives which would reduce or eliminate the use, 

occupancy, or disposition of public lands needed for subsistence purposes.

An ANILCA 810 analysis addresses three factors related to subsistence uses: 1) resources distribution and 

abundance; 2) access to resources; and 3) competition for the use of resources. The evaluation determines 

whether subsistence uses within the project area or portions thereof may be significantly restricted, as 

defined by the Alaska Land Use Council, by any of the proposed alternatives. Subsistence Standards and 

Guidelines are described starting on page 4-68 of the Forest Plan (USDA FS 2008a).

The Alaska Land Use Council’s definition of “significantly restrict subsistence use” is one guideline used 

in the evaluation: “a Proposed Action shall be considered to significantly restrict subsistence uses, if after 

any modification warranted by consideration of alternatives, conditions, or stipulations, it can be expected 

to result in a substantial reduction in the opportunity to continue subsistence uses of renewable 

Chapter 3 - 202 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

resources.” Considerations of abundance and distribution, access, and competition (by non-rural 

residents) are mentioned. 

The U.S. District Court Decision of Record I Kunaknana v. Watt provided additional clarification. In part, 

it states: “restrictions for subsistence use would be significant if there were large reductions in abundance 

or major redistribution of these resources, substantial interference with harvestable access to active 

subsistence-use sites or major increases in non-rural resident hunting.” 

This subsistence analysis tiers to the Forest Plan standards and guidelines for subsistence (USDA Forest 

Service 2008a), and the Forest Plan FEIS (USDA Forest Service 2008b). The FEIS contains in-depth 

discussions on the history of subsistence use and community information. The Forest Plan determined 

that the primary subsistence resource likely to be significantly affected by Forest Plan actions was Sitka 

black-tailed deer. Deer are considered the “indicator” for potential subsistence resource consequences 

concerning the abundance and distribution of the resources (USDA Forest Service 2008b) and will be the 

only species addressed in this analysis.

Affected Environment

The Analysis Area contains federal, state, local government, and private lands. Different legal frameworks 

regulate subsistence on lands of different status. The State of Alaska administers the harvest of fish and 

wildlife on all lands in Alaska, including for subsistence purposes, except as specifically superseded by 

federal law. When it is necessary to implement a federal subsistence priority under the terms of Title VIII 

of ANILCA, the Federal Subsistence Board regulates subsistence hunting on federally administered 

uplands and fishing on waters where there is a federal reserved water right. State, private, and Nativeselected or -owned lands are generally not within the jurisdiction of the federal subsistence management 

program and are regulated by the State of Alaska. This section only addresses subsistence uses by 

Federally qualified subsistence users on NFS lands. 

Nearly all rural Alaska communities depend on subsistence resources to meet at least part of their 

nutritional needs. The reasons for participating in subsistence vary. Some individuals participate in 

subsistence activities to supplement personal income and provide needed food. Others pursue subsistence 

activities to continue cultural customs and traditions. Many others participate in subsistence activities for 

personal reasons related to deeply held attitudes, values, and beliefs about where their food comes from, 

as well as the ability to supply their family directly through their own work.

Subsistence fishing, hunting, and gathering are important sources of nutrition in most rural communities. 

Statewide, subsistence harvests by rural residents consist primarily of fish (53%), followed by land 

mammals (23%), marine mammals (14%), plants (4%), shellfish (3%), and birds (3%) (Fall 2014). Fall’s 

2014 report estimated that the annual wild food harvest in Southeast Alaska was approximately 5,537,324 

pounds, or 200 pounds per person per year. Subsistence harvest levels vary widely from one community 

to another and from year to year. Table 3-36 shows overall subsistence participation rates as well as 

estimated deer and fish harvest for the communities that have important deer harvest areas within the 

Analysis Area (ADF&G 2015). 

The project area occurs in ADF&G GMUs 1C, 1D, and 4. Rural communities within the Analysis Area 

include Angoon, Elfin Cove, Hoonah, Pelican, Port Alexander, Sitka, and Tenakee Springs. Although not 

within the boundary of the Analysis Area the rural communities of Gustavus, Haines, Kake, and Skagway 

have community use areas that include portions of the Analysis Area (USDA Forest Service 2008b). 

Juneau is within the Analysis Area but is a non-rural community so Juneau residents are not eligible to 

harvest subsistence resources under Federal regulations. 

These rural communities use a wide range of subsistence resources as described in the Forest Plan FEIS 

(USDA Forest Service 2008b), but the Sitka black-tailed deer is the primary terrestrial mammal harvested 

by rural residents using the Analysis Area (ADF&G 2015). Almost all wildlife analysis areas (WAA) in 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 203 - 
Chapter 3—Environmental Consequences

GMU 4 provide important deer harvest areas for one or more rural communities (WAA are subdivisions 

of GMUs that are used by ADF&G for data collection purposes). Important deer harvest areas are 

described in the Forest Plan FEIS as the WAAs from which residents of a rural community obtained 

approximately 75% of their average annual deer harvest (USDA Forest Service 2008b). In addition to the 

communities previously listed, there are WAAs in the project Analysis Area that provides important deer 

hunting areas for the communities of Meyers Chuck, Petersburg, and Yakutat. 

Table 3-36: Subsistence resource use by communities with important deer harvest areas within the Shoreline 

Outfitter/Guide project analysis area

Community Year of 

Data Resource Percent of Community Using 

Subsistence Resources

Per Capita Pounds 

Harvested Annually

Angoon

2012 All 98 183

2012 Deer 84 51

2012 Fish 98 91

Elfin Cove

1987 All 100 263

1987 Deer 92 72

1987 Fish 100 139

Gustavus

1987 All 100 241

1987 Deer 70 64

1987 Fish 100 137

Haines

2012 All 98 137

2012 Deer 30 7 

2012 Fish 95 86

Hoonah

2012 All 98 343

2012 Deer 77 51

2012 Fish 94 192

Kake 

1996 All 99 179

1996 Deer 80 50

1996 Fish 99 85

Meyers Chuck

1987 All 100 414

1987 Deer 80 21

1987 Fish 100 279

Pelican

1987 All 100 355

1987 Deer 91 105

1987 Fish 100 179

Petersburg

2000 All 94 161

2000 Deer 40 14

2000 Fish 90 102

Port Alexander

1987 All 100 312

1987 Deer 94 108

1987 Fish 100 140

Sitka 

1996 All 97 205

1996 Deer 62 44

1996 Fish 95 112

Chapter 3 - 204 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Community Year of 

Data Resource Percent of Community Using 

Subsistence Resources

Per Capita Pounds 

Harvested Annually

Skagway

1987 All 96 48

1987 Deer 94 33

1987 Fish 29 3 

Tenakee Springs

1987 All 100 330

1987 Deer 87 135

1987 Fish 97 131

Yakutat

2000 All 100 386

2000 Deer 23 3 

2000 Fish 99 233

Guided deer hunting would be authorized under all alternatives, and the permitted allocation would not 

differ between alternatives. See the Sitka black-tailed deer discussion above for details on numbers of 

guided hunts and overall deer harvest in the Analysis Area. 

Environmental Consequences

Based on the MIS analysis for deer, no significant change in deer distribution or abundance is expected to 

result from implementing any of the alternatives. All alternatives are expected to result in some harvest 

mortality and minor disturbance of deer by guided recreationists. Although the overall harvest of deer by 

guided hunters is not known, guides provide on average, 24 hunts per year which is a very small 

percentage of the overall deer hunting effort. Guided hunting effort and mortality are not expected to vary 

by alternative. Other guided recreation related disturbance effects would vary by alternative with 

Alternative 4 having the greatest risk of disturbance, followed by alternatives 2, 3, and 1; based on total 

allocated numbers.

No new roads, trails, or other infrastructure would be built under any alternative. Thus, there would be no 

infrastructure related increases in access to subsistence use areas. There are no policies (e.g., road 

closures) proposed under any alternative that would limit access to subsistence use areas by subsistence 

users. 

Competition for wildlife and fisheries resources near rural communities results from a combination of 

factors, such as fish and wildlife regulations, mobility, the natural distribution of game species across the 

Tongass National Forest, decreases in resource populations as a result of habitat reductions, decreases in 

resource populations as a result of over-harvest, and access in the form of roads, ferries, commercial air 

carriers, and outfitter/guides. There are two ways in which guided hunters may compete with subsistence 

users: for resources (i.e. deer) and sites (i.e. hunting areas). There is little evidence that there is substantial 

competition for deer. While actual guided deer hunter harvest numbers are not known; based on reported 

effort guided deer hunters are about one percent of the total deer hunters in GMU 4. The level of 

competition for deer would not vary by alternative. It could increase under all alternatives, but there is no 

evidence of an increasing trend in guided deer harvest. No major increase in guided deer hunting is 

expected because much of the guided deer hunting is incidental or in combination with other hunts and 

deer are not a highly sought after trophy in the Analysis Area. In addition, if deer populations decline such 

that competition may become an issue, the ADF&G and/or the Federal Subsistence Board may issue 

emergency closures, change seasons, or restrict use by non-subsistence hunters. Such a situation happened 

in various parts of GMU 4 following severe snowfall winters in 2006-2009. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 205 - 
Chapter 3—Environmental Consequences

Competition between guided hunters and subsistence users for hunting areas may also occur. Generally, 

subsistence users harvest in traditional use areas surrounding their communities (Fall 2014). If these areas 

are being used by guided hunters, subsistence users may be displaced, even if the target species is 

plentiful. Outfitter/guides can provide access to important subsistence use areas for people who would not 

likely be able to access these areas otherwise. Guided big game hunting allocations would not vary by 

alternative. Therefore, all alternatives could increase guided deer hunter access to important subsistence 

use areas. Concern about this type of competition is showing in a resolution submitted by the Angoon 

Community Association (ACA) in response to project scoping. The ACA stated they oppose 

outfitter/guides hunting deer around the community of Angoon. To address this, the Admiralty National 

Monument Ranger has proposed to close the area between Parker Point on the west side of Admiralty 

Island north of Angoon to Point Gardner on the southwest tip of Admiralty Island south of Angoon (see 

project Design and Mitigation Measures section) to guided deer hunting. This would have minor effects 

on guided use as there is little reported guided deer hunting in the proposed exclusion area. Based on 

guide use reports, the area is not used yearly. From 2010-2014 guides reported using this area during two 

years for a total of 17 service days. This exclusion would not apply to other guided use clients. 

Competition at important subsistence use areas may be less of a concern with other guided use because of

different landscape and temporal use patterns by deer hunters compared to other guided use groups. Early 

in the deer hunting season, hunters predominantly pursue deer in higher elevation habitats, outside the 

project area. Later in the deer hunting season, as harvest activity increases, guided recreation decreases 

due to weather and other factors. 

Overall, competition between guided hunters and subsistence users would be the same under all 

alternatives. At current levels of guided deer hunting and allocations, and with the proposed mitigation in 

place around Angoon, competition between guided hunters and subsistence users is not expected to be 

significant. 

Cumulative Effects

Changes in habitat on National Forest managed lands and other ownerships could affect the distribution 

and abundance of subsistence resources. The Forest Plan ROD and FEIS determined that implementation 

of the selected alternative could result in a significant restriction to subsistence use of deer. This was 

based on the loss of habitat capability due to timber harvest and increased competition. This EIS is not 

expected to add cumulatively to changes in distribution and abundance of deer. Not enough guided deer 

harvest occurs to affect population levels. Disturbance is likely and would be greatest under Alternative 4, 

followed by Alternative 2, 3, and 1. However, for all alternatives disturbance is expected to be localized 

and short term, so that it would not measurably affect deer distribution.

No alternative for this EIS includes policies or environmental changes that would restrict subsistence 

users’ access to resources. Therefore, no alternative of this EIS would contribute to cumulative effects to 

restrictions on subsistence users’ access to resources.

Increased competition was part of the rationale for the Forest Plan FEIS determination that a significant 

restriction to subsistence uses of deer could occur. This was judged most likely to occur on Chichagof, 

Baranof, and/or Prince of Wales Islands, where competition for deer and some other land mammals is 

currently heavy, and habitat capability has been reduced as a result of timber harvest (USDA FS 2008b). 

In general, past projects have increased access within the Analysis Area for all resource users. Increased 

access to important subsistence use areas by non-subsistence users could increase competition. While 

there is overlap between guided deer hunters and community use areas, the current and expected amount 

of guided deer hunting is low under all alternatives. Thus, the cumulative contribution of this project to 

competition for deer is expected to be insignificant.

Chapter 3 - 206 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Subsistence Finding 

Based on the MIS analysis for deer, no significant change in deer distribution or abundance is expected to 

result from implementing any of the alternatives. No restrictions to subsistence users’ access to 

subsistence resources in proposed under any alternative. Under all alternatives, this project could slightly 

increase competition for deer, by improving access for non-subsistence users to important subsistence 

areas. However, this increase is not expected to be significant. Therefore, this evaluation concludes that 

all alternatives shall not result in a significant restriction of subsistence uses. 

Threatened, Endangered, Sensitive, and Rare 

Plants 

Introduction

The 2008 Tongass Forest Plan includes standards and guidelines for analysis of effects of activities on 

threatened, endangered, sensitive, and rare plants. Threatened and endangered species are those listed in 

accordance with the Endangered Species Act of 1973. Federal law requires that an effects analysis be 

conducted for activities that could affect species listed as threatened or endangered by the U.S. Fish and 

Wildlife Service. The only plant in Alaska that is federally listed or proposed as threatened or endangered 

is Aleutian holly fern (Polystichum aleuticum), which occurs only in the Aleutian Islands chain and is not 

expected to occur on the Forest; therefore, it will not be addressed further in this analysis. 

Sensitive species are identified by the Regional Forester as having potential for loss of viability, as 

evidenced by 1) significant current or predicted downward trends in population numbers or density, 

and/or 2) significant current or predicted downward trends in habitat capability that would reduce a 

species’ existing distribution (Goldstein et al. 2009). The Alaska Region Sensitive Species List was last 

revised and signed by the Regional Forester on February 2, 2009. The regulatory and policy framework 

concerning the management of sensitive plants is summarized in Dillman and Krosse (2009).

The 2008 Tongass Forest Plan includes standards and guidelines for analysis of effects of activities on 

rare plants (exclusive of those listed as sensitive). The definition of rare plants on the Tongass National 

Forest is summarized by Dillman and Krosse (2009) and is generally based on the Alaska Natural 

Heritage Program rare plant tracking list (ANHP 2013). The list of rare plants is dynamic, and species 

may be added or dropped according to changes in conservation or taxonomic status. 

Methods 

Analysis Area

The Analysis Area for direct and indirect effects to sensitive and rare plants and invasive plant risk is the 

project area, which is the total area designated for non-motorized activities that originate from the marine 

shoreline and generally extend 1⁄2 mile inland on the Juneau, Hoonah, and Sitka Ranger Districts and 

Admiralty National Monument (Figure 1-1). This would capture the majority of commercial marine 

shoreline-based use on all ranger districts. Although the majority of authorized use will be in the 1⁄2 mile 

zone, some exceptions may occur further inland for some specific activities and locations (e.g. goat/deer 

hunting, canoe route/portage, freshwater fishing on some streams and lakes, and designated wilderness), 

and these areas are also included in the project area boundary. The Analysis Area for cumulative effects to 

sensitive and rare plants and invasive plant risk is the administrative boundaries of Admiralty National 

Monument and the Hoonah, Juneau, and Sitka Ranger Districts. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 207 - 
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Habitats within the project area commonly used by outfitters and guides include maritime beaches, upper 

beach meadows and estuaries, beach fringe forest, muskegs, and meadows, streams and riparian corridors. 

Habitats occasionally used are lakes and alpine areas. Alpine areas are most often visited by goat hunters 

during late summer to late fall. While alpine habitats typically do not fall within the 1⁄2 mile shoreline zone 

(e.g. the project area), some alpine sites are considered in this analysis due to their potential use by 

outfitter/guides.

Review of Existing Information

A review of existing information was conducted to document the occurrence of known occurrences of 

sensitive and rare plants and to identify habitats likely to contain known or suspected sensitive plant 

species in the project area. The Forest Service Natural Resource Information System (NRIS) database for 

threatened, endangered, and sensitive plants (TESP) was searched for known sensitive plant occurrences 

in the project area. Additionally, the University of Alaska Fairbanks ARCTOS herbarium database 

(UAMH 2015) was searched for other known locations of sensitive or rare plants in the project area. 

Sensitive plants that are suspected to occur in the project area were identified based on relevant literature, 

habitat descriptions from regional floras, and Forest species conservation assessments.

Effects Analysis

The project alternatives, including the no-action alternative, were analyzed to determine the direct, 

indirect, and cumulative effects on rare plants known to occur in the project area and sensitive plants that 

are either known or suspected to occur in the project area. Direct environmental effects are those 

occurring at the same time and place as the initial cause or action. Direct effects mainly occur through 

physical damage and/or destruction of individual plants. 

Indirect effects are those that cause impacts to plants either later in time after the activity or in an area that 

is spatially distant from the activity. As with direct effects, indirect effects are also most likely to be 

caused by hiking or camping activities. The exact location, type, frequency, and intensity of future 

outfitter/guide use are unknown. However, the potential impacts to known rare or sensitive plants or 

sensitive plant habitat from outfitter/guide use can be generally compared based on the maximum number 

of allocated service days. An increase in the number of allocated service days will likely increase the 

amount of foot traffic and camping in an area, which for this analysis is assumed to increase the risk of 

direct and indirect effects to rare or sensitive plant occurrences or sensitive plant habitat in that area. 

Therefore, the likelihood and consequences of effects were assessed for each proposed alternative based 

on the maximum number of allocated service days, while taking into consideration project design criteria 

and mitigation for protection of rare and sensitive plants. 

Cumulative impacts result from incremental effects of Proposed Actions, when added to other past, 

present, and reasonably foreseeable future actions, regardless of what agency or person undertakes such 

actions. The interdisciplinary team (IDT) developed a list of activities to consider when analyzing the 

cumulative effects of the project. The list of activities included but was not limited to: 

• Kruzof Integrated Resource Project

• Hidden Falls Fish Hatchery Repermit

• Sweetheart Hydroelectric project in Gilbert Bay

• State of Alaska energy projects

• Sealaska Land Exchange

• Angoon Airport

• Thayer Lake Hydroelectric project

Chapter 3 - 208 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

A complete list of projects is included in the project record. 

The cumulative impacts of these actions on sensitive and rare plants were determined by reviewing 

available documentation and maps of the listed projects to determine the impact of project actions located 

within the cumulative effects Analysis Area relative to known sensitive and rare plant occurrences. These 

cumulative impacts, along with the direct and indirect impacts of project alternatives, were considered 

when determining the overall risk to sensitive plants.

Affected Environment

Sensitive Plants 

According to the Forest Service NRM database, 1,006 botanical surveys have been conducted in the 

project area in the past, with a total of 3,167 acres surveyed. This represents approximately 0.1 percent of 

the total project area of 3,212,225 acres. It is possible that the majority of potential sensitive plant habitat 

in the project area has not been surveyed, and undetected occurrences of sensitive plant species may exist 

in the project area.

Seventeen vascular plant species and one lichen species are designated as sensitive in the Alaska Region. 

Fourteen of these species are known to occur in the project area or are suspected to occur because the 

project is within their natural geographic range and suitable habitat for these species is present in the 

project area (Table 3-37).

Table 3-37: Alaska Region sensitive plant and lichen species known or suspected to occur in the project area

Scientific name Common name Habitat Presence in project area

Aphragmus 

eschscholtzianus

Eschscholtz’s 

little nightmare

Moist to wet solifluction slopes, scree 

slopes, and rocky ridges in the alpine 

zone

Suspected. Project area 

contains suitable habitat 

within known or suspected 

geographic range of this 

species.

Botrychium 

spathulatum

spatulate 

moonwort

Dry to mesic sand dunes, old fields, and 

grassy railroad sidings in the montane 

zone

Known. Documented 

occurrences in the project 

area.

Botrychium tunux moosewort fern

Beach sand deposits sparsely to densely 

vegetated by bryophytes and herbaceous 

plants; sparsely vegetated alpine scree 

slopes

Suspected. Project area 

contains suitable habitat 

within known or suspected 

geographic range of this 

species.

Botrychium 

yaaxudakeit

moonwort fern, 

no common 

name

Beach sand deposits sparsely to densely 

vegetated by bryophytes and herbaceous 

plants; in inland locations it occurs in 

grassy riverine meadows and mountain 

talus slopes

Suspected. Project area 

contains suitable habitat 

within known or suspected 

geographic range of this 

species.

Cypripedium 

montanum

mountain lady’s 

slipper

Moist to dry open forests in the lowland, 

montane, and subalpine zones

Suspected. Project area 

contains suitable habitat 

within known or suspected 

geographic range of this 

species.

Cypripedium 

parviflorum var. 

pubescens

large yellow 

lady’s slipper

Moist to mesic streambanks, river 

terraces, thickets, mossy bogs, and 

swamps in the steppe and montane 

zones

Suspected. Project area 

contains suitable habitat 

within known or suspected 

geographic range of this 

species.

Ligusticum caldera Calder’s loveage Forest edges and subalpine meadows in Suspected. Project area 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 209 - 
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Scientific name Common name Habitat Presence in project area

calcareous areas. contains suitable habitat 

within known or suspected 

geographic range of this 

species.

Lobaria amplissima lung lichen

Trunks and main branches of Picea 

sitchensis, Malus fusca, and Tsuga 

heterophylla of old-growth beach fringe 

edges that are exposed to large bodies of 

ocean

Known. Documented 

occurrences in the project 

area.

Papaver 

alboroseum pale poppy Mesic to dry scree slopes in the alpine zone

Suspected. Project area 

contains suitable habitat 

within known or suspected 

geographic range of this 

species.

Piperia 

unalascensis

Alaska rein 

orchid

Dry to moist coniferous forests, grassy 

slopes, meadows, thickets, and 

streambanks in the lowland, steppe, and 

montane zones

Known. Documented 

occurrences in the project 

area.

Polystichum 

kruckebergii

Kruckeberg’s 

swordfern

Dry to mesic ultramafic rock outcrops and 

talus in the montane and subalpine zones

Known. Documented

occurrences in the project 

area.

Romanzoffia 

unalaschcensis

Alaska 

mistmaiden

Gravelly areas along streams, and on 

ledges and crevices in rock outcrops, 

often along the coast

Known. Documented 

occurrences in the project 

area.

Sidalcea 

hendersonii

Henderson’s 

checkermallow

Wet meadows, estuaries and tidal flats in 

the lowland zone

Known. Documented 

occurrences in the project 

area.

Tanacetum 

bipinnatum 

ssp. Huronense

dune tansy Moist to mesic sand dunes in the lowland 

zone

Suspected. Project area 

contains suitable habitat 

within known or suspected 

geographic range of this 

species.

Six sensitive plant species are known to occur in the project area. The number and location of known 

sensitive plant occurrences in use areas is summarized in Table 3-38. No sensitive plant is known to occur 

in or adjacent to existing or proposed LGAs.

Table 3-38: Number of occurrences of sensitive plant species known to occur within the project area

Species Known Occurrences Use Area

Spatulate moonwort 1 04-03 Sitka Area

Lung lichen 3 04-03 Sitka Area

3 04-02D SW Baranof

Alaska rein orchid 1 04-15D Portlock Harbor

1 04-03 Sitka Area

Kruckeberg's hollyfern 4 04-01A Gut Bay, Baranof

Alaska mistmaiden 1 04-03 Sitka Area

Henderson’s checkermallow 1 01-03 East Chilkats

Chapter 3 - 210 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Rare Plants 

Ten rare plant species were identified as having known occurrences in the project area. The number and 

location of these occurrences within use areas is summarized in Table 3-39. A few rare plant occurrences 

are located in or adjacent to existing or proposed Large Group Areas (Table 3-40). Under all action 

alternatives, Large Group Areas may be subject to an increased proportion of service days of over 50 

percent of allocations in a use area. However, these sites are hardened to accommodate increased use, so 

the risk of impacts to rare plants is expected to be similar to areas with fewer allocated service days.

Table 3-39: Number of occurrences of rare plant species known to occur within the project area

Scientific Name Common Name

State/Global 

Rarity Rank

Number of

Occurrences Location (Use Area) 

Ambrosia chamissonis silver bur ragweed S2/G4G5 5 04-03 Sitka Area

Asplenium trichomanes maidenhair

spleenwort S2S3/G5 1 04-01A Gut Bay, Baranof

Botrychium ascendens trianglelobe

moonwort S2S3/G3 3 01-03 East Chilkats

2 04-03 Sitka Area

Chimaphila umbellata pipsissewa S2/G5 1 01-04C Taku Inlet

Juncus covillei var.

obtusatus Coville's rush S1/G5 1 04-13 Peril Strait

Lactuca biennis tall blue lettuce S2S3/G5 3 01-03 East Chilkats

2 04-08 NE Admiralty

Melica subulata Alaska oniongrass S2S3/G5 2 04-03 Sitka Area

Mimulus lewisii purple monkeyflower S2S3/G5 2 04-01A Gut Bay, Baranof

1 04-01B Port Armstrong

5 04-02B Whale Bay

1 04-03 Sitka Area

Myriophyllum farwellii Farwell's watermilfoil S1/G5 1 04-04B Kelp Bay

Saussurea americana American saw-wort S2S3/G5 1 04-02B Whale Bay

*State (S) and Global (G) rarity ranks are determined by the Alaska Natural Heritage Program (2013).

Table 3-40: Number of occurrences of rare plant species known to occur within the Large Group Areas

Scientific Name Common Name

Number of

Occurrences Large Group Area

Ambrosia chamissonis silver bur ragweed 4 04-03 Shoals Point

Lactuca biennis tall blue lettuce 1 04-08 Cordwood Creek

Myriophyllum farwellii Farwell's watermilfoil 1 04-04A Lake Eva Trail

Environmental Consequences

Effects Common to all Alternatives 

Direct effects mainly occur through physical damage and/or destruction of individual plants or entire 

occurrences. Direct impacts to sensitive plants from outfitter/guide use are usually very limited in area 

and are most likely to be associated with trampling or crushing of individual plants. This could be the 

result of hiking or camping, which are common components of outfitter/guide activities. Cole and Trull 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 211 - 
Chapter 3—Environmental Consequences

(1992) found that vegetation cover declines with successive passes of a hiker. Similarly, Monz (1998) 

observed that vegetated sites in coastal areas of Alaska are susceptible to increased vegetation loss as 

recreation use increases. These impacts are most likely to occur during the summer, when the winter snow 

pack has melted and plants are actively growing. In fall, most plants are either dormant or in the process 

of dormancy. In winter and spring, most live plants have been reduced to dormant underground roots and 

may also be covered by an accumulated snowpack, so the risk of physical damage is low to none. 

Indirect effects include soil erosion or compaction, or changes in solar exposure, decreased vegetation 

cover, or species composition. These effects could negatively impact the ability of an individual plant to 

thrive over time. As with direct effects, indirect effects are most likely to occur in the summer. Some 

indirect impacts may occur in years subsequent to the initial impact.

For all alternatives, the likelihood of direct and indirect impacts on sensitive or rare plants is expected to 

be low because of the limited locations and small size of areas used by outfitter/guides, and the intensity 

of potential impacts is expected to be low because they would mainly result from infrequent hiking and 

camping activities of short duration. In addition, project design features for use areas (Appendix A), 

application of mitigation measures (Appendix C) and implementing Adaptive Management (Chapter 2) 

limit the potential risk of effects to the sensitive or rare plants within the proposed allocations. 

Comparison of Alternatives

Sensitive Plants

Alternative 1 (No Action) is the 2004 Shoreline Outfitter/Guide FEIS ROD. The 2004 allocation was 

measured in group days in which a group of six people on shore in a single day equals one group day. 

Under Alternative 1, the allocation would remain the same as the 2004 levels, and the Forest Service

methods for allocating permits will remain the same as they are now. A total of 7,697 service days are 

allocated in use areas with known occurrences of sensitive plants, including 5,463 days in the summer 

growing season (Table 3-41). This allocation, based on the number of service days, would have the least 

risk of impact to sensitive plants of all project alternatives. Under Alternative 2 (Proposed Action), a total 

of 13,590 service days are allocated in use areas with known occurrences of sensitive plants, including 

9,465 days in the summer growing season. This allocation would have higher risk of impacts to sensitive 

plants of than Alternatives 1 and 3, but lower risk than Alternative 4. Under Alternative 3, a total of 

10,410 service days are allocated in UAs with known occurrences of sensitive plants, including 7,105 

days in the summer growing season. This allocation would have less potential risk than Alternatives 2 and 

4, but would have a higher level of risk of impacts to sensitive plants than under Alternative 1. Under 

Alternative 4, a total of 22,125 service days are allocated in UAs with known occurrences of sensitive 

plants, including 15,410 days in the summer growing season. The maximum number of service days 

allocated under this alternative would be higher than the maximum allowed under Alternatives 1, 2, and 3. 

This alternative, based on the number of service days, would have the highest risk of impacts to sensitive 

plants of all project alternatives.

Table 3-41: Allocated service days by alternative and season in use areas with known sensitive plant 

occurrences

Service Days

Alternative Spring Summer Fall Winter Total 

1 1,232 5,463 1,002 0 7,697

2 1,550 9,465 1,770 805 13,590 

3 1,165 7,105 1,335 805 10,410

4 2,520 15,410 2,885 1,310 22,125

Total 6,467 37,443 6,992 2,920 53,822

Chapter 3 - 212 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Rare Plants

Alternative 1 (No Action) is the 2004 Shoreline O/G FEIS ROD. Under this alternative, in the 2004 

Shoreline O/G FEIS ROD allocation was measured in group days where a group of six people on shore in 

a single day equals one group day. Under Alternative 1, the allocation would remain the same as the 2004 

levels our methods for allocating permits will remain the same as they are now. A total of 14,392 service 

days are allocated in use areas with known occurrences of rare plants, including 9,832 days in the summer 

growing season (Table 3-42). This allocation, based on the number of service days, would have the least 

risk of impact to rare plants of all project alternatives. Under Alternative 2, a total of 28,965 service days 

are allocated in UAs with known occurrences of rare plants, including 22,570 days in the summer 

growing season. This allocation would have higher potential risk of impacts to rare plants than 

Alternatives 1 and 3, but less than Alternative 4. Under Alternative 3, a total of 22,105 service days are 

allocated in UAs with known occurrences of rare plants, including 16,940 days in the summer growing 

season. This allocation would have less potential risk than Alternatives 2 and 4, but would have a higher 

level of risk of impacts to rare plants than under Alternative 1. Under Alternative 4, a total of 47,362 

service days are allocated in UAs with known occurrences of rare plants, including 36,755 days in the 

summer growing season. The maximum number of service days allocated under this alternative would be 

higher than the maximum allowed under Alternatives 1, 2, and 3. This alternative, based on the number of 

service days, would have the highest risk of impacts to rare plants of all project alternatives.

For all alternatives, the spatial scale of impacts on rare plants is expected to be small because of the 

limited location and size of areas impacted by outfitter/guide use, and the intensity of potential impacts is 

expected to be low because they would mainly result from infrequent hiking and camping activities. In 

addition, project design criteria, mitigation measures, and monitoring have been included to limit the 

potential risk of effects to the rare plants within the proposed allocations. Potential sources of cumulative 

effects are discussed in the Methods section. Board of Game, Federal Subsistence Board, and Board of 

Fisheries decisions are expected to have little or no impact to rare plants, since they are mainly concerned 

with level of harvest of fish and wildlife. Since the other listed actions are generally limited in spatial 

extent and either do not overlap with known rare plant occurrences or are not expected to have little or no 

impact to rare plants, the likelihood of cumulative impacts to rare plants is expected to be low. Also, the 

majority of these actions were, are, or will be located on National Forest System lands, an environmental 

analysis has been or will be completed for these activities, and Forest Plan standards and guidelines for 

rare plants must be considered. Therefore, the likelihood and consequence of impacts to rare plants under 

all project alternatives is expected to be low.

Table 3-42: Allocated service days by alternative and season in use areas with known rare plant occurrences

Service Days

Alternative Spring Summer Fall Winter Total

1 2,630 9,832 1,930 0 14,392

2 2,680 22,570 2,350 1,365 28,965 

3 2,020 16,940 1,780 1,365 22,105

4 4,355 36,755 3,825 2,225 47,160 

Cumulative Effects

Potential sources of cumulative effects are discussed in the Methods section. Board of Game, Federal 

Subsistence Board, and Board of Fisheries decisions are expected to have little or no impact to sensitive 

or rare plants, since they are mainly concerned with level of harvest of fish and wildlife. Since the other 

listed actions are generally limited in spatial extent and either do not overlap with known sensitive or rare 

plant occurrences or are expected to have little or no impact to sensitive or rare plants, the likelihood of 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 213 - 
Chapter 3—Environmental Consequences

cumulative impacts to sensitive or rare plants is expected to be low. Also, because the majority of these 

actions were, are, or will be located on National Forest System lands, an environmental analysis has been 

or will be completed for these activities, and Forest Plan standards and guidelines for sensitive and rare 

plants must be considered in the analysis. Therefore, the likelihood and consequence of impacts to 

sensitive or rare plants under all project alternatives is expected to be low.

Invasive Plants

Introduction

Policy and direction for invasive plant management is provided by the Forest Service Manual 2900. The 

Tongass National Forest has developed a list of plants that are a priority for treatment, where feasible. The 

Alaska Natural Heritage Program invasiveness ranks were used as one of several factors in identifying the 

target species (ANHP 2015). Generally speaking, a plant with an invasiveness ranking higher than 60 is a 

priority for treatment and control; however, there are other important factors used in the development of 

the target list (e.g., feasibility of treating the weed in certain locations).

Methods 

Analysis Area

The Analysis Area for direct and indirect effects to invasive plant risk is the project area, which is the total 

area designated for non-motorized activities that originate from the marine shoreline and generally extend 

1⁄2 mile inland on the Juneau, Hoonah, and Sitka Ranger Districts and Admiralty National Monument 

(Figure 1-1). This would capture the majority of commercial marine shoreline-based use on all ranger 

districts. Although the majority of authorized use will be in the 1⁄2 mile zone, some exceptions may occur 

further inland for some specific activities and locations (e.g. goat/deer hunting, canoe route/portage, 

freshwater fishing on some streams and lakes, and designated wilderness), and these areas are also 

included in the project area boundary. The Analysis Area for cumulative effects to invasive plant risk is 

the administrative boundaries of Admiralty National Monument and the Hoonah, Juneau, and Sitka 

Ranger Districts.

Habitats within the project area commonly used by outfitters and guides include maritime beaches, upper 

beach meadows and estuaries, beach fringe forest, muskegs, and meadows, streams and riparian corridors. 

Habitats occasionally used are lakes and alpine areas. Alpine areas are most often visited by goat hunters 

during late summer to late fall. While alpine habitats typically do not fall within the 1⁄2 mile shoreline zone 

(e.g. the project area), some alpine sites are considered in this analysis due to their potential use by 

outfitter/guides.

Review of Existing Information

All recorded invasive plant infestations documented in the Forest Service Natural Resource Inventory 

System (NRIS) were reviewed to develop a list of high and medium priority invasive plant species in the 

project area and determine the location of known high priority infestations in the project use areas. 

However, botanical surveys have occurred in only 0.1 percent of the project area. Many of these surveys 

were not focused on invasive plants until the mid- 2000s, although invasive plants were sometimes 

reported before that time. Invasive plant surveys have been conducted in 24 of the 40 LGAs. Surveys 

have also been conducted on most Forest Highway road systems and other areas of human disturbance 

within the project area.

Chapter 3 - 214 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Effects Analysis

An invasive plant risk assessment was conducted for the project alternatives based on several factors. 

Definitions of risk assessment criteria are included in the project invasive plant risk assessment, which is 

included in the project record. This information was used to analyze potential effects from outfitter guide 

activities and determine the overall level of risk of each project alternative for spread of invasive plants. 

The project alternatives, including the no-action alternative, were analyzed to determine the direct, 

indirect, and cumulative effects on risk of invasive plant spread. Direct environmental effects are those 

occurring at the same time and place as the initial cause or action. Direct effects from outfitter/guide use 

mainly occur during hiking or camping activities through physical damage of natural vegetation or soil 

disturbance that creates conditions favorable for introduction or spread of invasive plants. Transportation 

of invasive plant propagules on equipment or clothing to unaffected areas is also a direct effect. Indirect 

effects occur later in time or are spatially removed from the activity, such as new infestations that are 

established as a result of project activities. As with direct effects, indirect effects are also most likely to be 

caused by hiking or camping activities. 

The exact location, type, frequency, and intensity of future outfitter/guide use are unknown. However, the 

potential effect on risk of invasive plant spread from outfitter/guide use can be generally compared based 

on the maximum number of allocated service days. An increase in the number of allocated service days 

will likely increase the amount of foot traffic and camping in an area, which for this analysis is assumed 

to increase the risk of invasive plant spread in that area. Therefore, the likelihood and consequences of 

effects were assessed for each proposed alternative based on the maximum number of allocated service 

days, while taking into consideration project design criteria and mitigation for protection of sensitive 

plant occurrences and habitat. 

Cumulative impacts result from incremental effects of Proposed Actions, when added to other past, 

present, and reasonably foreseeable future actions, regardless of what agency or person undertakes such 

actions. The project interdisciplinary team developed a list of activities to consider when analyzing the 

cumulative effects of the project. The list of activities included but was not limited to: 

• Kruzof Integrated Resource Project

• Hidden Falls Fish Hatchery Repermit

• Sweetheart Hydroelectric project in Gilbert Bay

• State of Alaska energy projects

• Sealaska Land Exchange

• Angoon Airport

• Thayer Lake Hydroelectric project

A complete list of projects is included in the project record. 

The cumulative impacts of these actions on invasive plant risk were determined by reviewing available 

documentation and maps of the listed projects to determine the impact of project actions located within 

the cumulative effects Analysis Area relative to the risk of invasive plant spread. Potential cumulative 

impacts from these activities could include changes in the amount, intensity, and duration of ground 

disturbance, vectors for transport of invasive plants to uninfested areas, and spread of existing 

infestations. These cumulative impacts, along with the direct and indirect impacts of project alternatives, 

were considered when determining the overall risk of invasive plant spread. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 215 - 
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Affected Environment

Over 80 invasive or non-native plant species have been documented within the general project area. Some 

of these species are only found near or within urban communities or have such a low invasive ranking that 

they will not be considered in this analysis. Invasive plants that are considered a substantial threat to certain 

vulnerable habitats will be discussed below as High Priority Species. Medium Priority Species generally have 

a lower invasiveness ranking and/or are not currently known to be spreading by seed, and therefore are less 

likely to be spread by outfitter/guide activities.

High priority species that present a potential risk of new infestations or spread of existing infestations from 

project activities are listed in Table 3-43. Where feasible, the Forest Service may attempt to control or eradicate 

these species in the project area. Some species, such as meadow hawkweed, orange hawkweed, and perennial 

sowthistle, may already be so widespread in some areas that eradication may not be possible. Known high 

priority invasive plant infestations in the project area are listed in Table 3-44. All high priority weed 

infestations should be avoided by outfitter/guides to minimize the risk of spreading these species.

Table 3-43: High priority invasive plants that present a potential risk of new infestations or spread of existing 

infestations in the project area

Scientific Name Common Name Invasiveness Rank*

Alliaria petiolata Garlic mustard 70

Centaurea biebersteinii Spotted knapweed 86

Hieracium aurantiacum Orange hawkweed 79

Hieracium caespitosum Meadow hawkweed 79

Impatiens glandulifera Ornamental jewelweed 82

Linaria vulgaris Butter and eggs 69

Sonchus arvensis Perennial sowthistle 61

Vica cracca Bird vetch 73

*Invasiveness ranks are determined by the Alaska Natural Heritage Program (2015).

Table 3-44: Known high priority invasive infestations in the project area

Area Common name Notes

01-01 Skagway Area Butter and Eggs Existing Treatment area on NFS land.

01-04B N. Juneau Coast Garlic Mustard Existing Treatment area on NFS land.

01-04B N. Juneau Coast Orange Hawkweed Infestation on NFS land. 

04-08 NE Admiralty Perennial Sowthistle Infestation on NFS land. 

04-11A Port Frederick Perennial Sowthistle

Most infestations on city, state,

corporate or private land. One known

infestation on NFS land.

04-11B Freshwater Bay Orange Hawkweed Existing Treatment area on NFS land. 

Medium priority invasive plant species occurring in the project area are listed in Table 3-45. Although 

infestations of these species occur in some use areas, they are less likely to be spread by outfitter/guide

activities. For example, reed canary grass is common on most roads and has invaded some rivers, 

meadows and beaches, but it is generally less common in more remote areas without substantial human 

disturbance. In some cases, a site closure may be considered if particular infestations of these species pose 

a locally high risk. For example, if an infestation of Canada thistle is found to be spreading by seed in a 

high use area, that infestation may justify avoidance or site closure until it can be treated.

Chapter 3 - 216 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Table 3-45: Medium priority invasive plants known to occur in the project area

Scientific Name Common Name Invasiveness Rank*

Brassica rapa Field mustard 50

Cirsium arvense Canada thistle 76

Cirsium vulgare Bull thistle 61

Crepis tectorum Narrowleaf hawksbeard 56

Fallopia convolvulus Black bindweed 50

Hypericum perforatum St. Johnswort 52

Hypochaeris radicata Hairy catsear 44

Leontodon autumnalis Fall dandelion 51

Melilotus alba Sweetclover, white 81

Phalaris arundinacea Reed canarygrass 83

Senecio jacobaea Tansy ragwort 63

*Invasiveness ranks are determined by the Alaska Natural Heritage Program (ANHP 2013).

Environmental Consequences

Risk Assessment

An invasive plant risk assessment conducted for the project alternatives is presented in Table 3-46. This 

information was used to analyze effects from potential outfitter guide activities and to determine the 

overall level of risk of each project alternative for spread of invasive plants. In summary, the alternatives 

have varying levels of allocated service days and therefore variable risk of invasive plant spread. 

However, because of the small spatial scale and low intensity and duration of potential vegetation or 

ground disturbance from outfitter/guide activities, and because standard mitigation measures for 

prevention and control of invasive plants are included in the project design, the risk factors under all 

alternatives is expected to be similar.

Table 3-46: Summary of invasive risk assessment of project alternatives

Factors Condition Risk (All Alternatives)

Inventory

Botanical surveys have occurred only in limited areas in 

the project area. Invasive plant surveys have been 

conducted at 24 of the 40 large group areas.

Over 80 invasive or non-native plant species have been 

documented within the general project area.

Moderate – because large areas 

have not been surveyed, some 

infestations may not have been 

detected. However, known 

infestations of priority species are 

mostly isolated and relatively 

small in size.

Known invasive 

plants

High and medium priority invasive species documented 

in project area (see Tables 3-37 and 3-38)

Moderate – existing infestations 

of priority species can serve as a 

seed source for new infestations if 

transported by a vector.

Habitat vulnerability

Variable according to site location and characteristics. 

Habitats in or near areas of human-caused or natural 

disturbance, near existing invasive species infestations, 

and/or subject to high levels of outfitter guide use are 

the most vulnerable habitats. Soil disturbance, open 

sunlight, and reduced vegetative cover favor the 

introduction and spread of invasive plants. 

Low – most of the areas used by 

outfitter/guides are remote and 

contain mostly undisturbed 

habitat, These areas are less 

vulnerable to infestation than 

disturbed areas near urban 

centers and/or large infestations. 

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Chapter 3—Environmental Consequences

Factors Condition Risk (All Alternatives)

Non-project 

dependent vectors

Major non-project weed vectors include: road 

construction, maintenance, and use; historical and 

permitted cabins; permitted and non-permitted camps; 

and dispersal of plant propagules by natural vectors 

(wind, water, and wildlife).

Low – although an extensive road 

system exists in some use areas, 

their use is relatively light. Cabins 

and camps are relatively few and 

widely dispersed across the 

project area. Infestations in 

remote areas often are the result 

of natural vectors such as wind 

and water transport, but the 

overall infestation rate appears to 

be low across the project area. 

Habitat alteration 

expected as a result 

of the project

Vegetation trampling and soil compaction or soil 

exposure can occur due to outfitter/guide activities. 

Potholes, trenches and exposed organic or mineral soil 

can occur on wet sites, and often leads to more 

disturbances adjacent to an existing path or trail. On 

sloping surfaces, this type of disturbance can lead to 

soil erosion and the affects may be long term. In 

combination with adequate light and a source of 

invasive propagules, this type of disturbance can create 

favorable conditions for invasive plants. 

Low - most of the physical 

vegetation and ground 

disturbance from outfitter guide 

use is expected to be limited in 

area, low in intensity, and shortterm in duration.

Increased vectors as 

a result of project 

implementation

Moving groups of people from locations infested with 

invasive species to pristine areas carries a risk of 

spreading weed seeds.

Moderate – visitors traveling from 

urban centers to remote areas 

can transport invasive plant 

propagules, which can establish 

infestations in vulnerable habitat, 

unless preventative measures are 

implemented.

Mitigation measures

If no prevention and avoidance mitigation measures 

implemented

Moderate risk of introduction of 

invasive plants

If some prevention and avoidance mitigation measures 

implemented

Moderate risk of introduction of 

invasive plants

If all prevention and avoidance mitigation measures 

implemented

Low risk of introduction of 

invasive plants

Anticipated invasive 

plant response to 

Proposed Action

Invasive plants tend to spread into available habitats 

through natural vectors over time, while human 

activities often accelerate this spread. Guided activities 

can spread invasive plants to new locations. Increased 

numbers of allocated use days create more 

opportunities for invasive plant propagules to be 

transported and established in a new location. 

Low - permitting procedures and 

mitigation measures should 

reduce the risk of spreading 

invasive species from outfitter 

guide activities.

Effects Common to all Alternatives 

Direct effects are those occurring at the same time and place. A new infestation caused by transportation 

of invasive plant seeds to previously unaffected areas is an example of a direct effect of outfitter/guide

activities. Indirect effects are those that occur later in time or in a separate location. Indirect effects 

include vegetation damage and/or soil disturbance caused by repeated camping in or walking through an 

area, which creates favorable conditions for invasive plant infestations. An increase in the number of 

allocated service days will likely increase the amount of foot traffic and camping in an area, which for 

this analysis is assumed to increase the risk of direct and indirect effects to risk of invasive plant spread 

in that area. 

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Environmental Consequences—Chapter 3

The project alternatives have varying service day allocations, which would likely result in varying risk of 

spreading invasive plants. However, under all alternatives the likelihood of direct and indirect effects on 

risk of spreading invasive plants is expected to be low because of the limited locations and small size of 

areas used by outfitter/guides, and the intensity of potential impacts is expected to be low because they 

would mainly result from infrequent hiking and camping activities of short duration. In addition, project 

design features for use areas (Appendix A), application of mitigation measures (Appendix C) and 

implementing Adaptive Management (Chapter 2) limit the potential risk of invasive plant infestation 

within the proposed allocations. 

Comparison of Alternatives

Alternative 1 (No Action) in this analysis is the 2004 Shoreline Outfitter/Guide EIS ROD. Under this 

alternative, an allocation of 47,449 service days would be the same as allowed under the 2004 levels 

(Table 3-47). Based on the number of allocated service days, this alternative would allow the least amount 

of use and therefore the lowest risk of spreading invasive plants by outfitter/guide activities. Alternative 2 

allows for allocation of up to 80,305 service days for outfitter/guide use. The potential service day 

allocation for this alternative would therefore have a higher risk of invasive plant spread than Alternatives 

1 and 5, but less risk than Alternative 4. Alternative 3 would allocate up to 63,940 days for outfitter/guide 

permitted use, which would have a higher risk of invasive plant spread than Alternative 1, but less risk 

than Alternatives 2 and 4. Alternative 4 allocates 130,655 service days to outfitter/guide use and therefore 

would present the highest risk of invasive plant spread of all the project alternatives.

Table 3-47: Allocated service days by alternative in all use areas

Allocated Service Days

Alternative Spring Summer Fall Winter Total

1 8,400 32,225 6,827 0 47,449

2 10,350 57,120 9,430 3,405 80,305

3 8,040 44,920 7,575 3,405 63,940

4 16,760 93,015 15,345 5,535 130,655

Cumulative Effects

Potential sources of cumulative effects are discussed in the Methods section. Board of Game, Federal 

Subsistence Board, and Board of Fisheries decisions are expected to have little or no effect on invasive 

plant spread, since they are mainly concerned with level of harvest of fish and wildlife. Since the other 

listed actions are generally limited in spatial extent and either do not overlap with known priority invasive 

plant infestations or are expected to have low risk of invasive plant spread, the likelihood of cumulative 

risk of invasive plant spread is expected to be low. Also, because the majority of these actions were, are, 

or will be located on National Forest System lands, an environmental analysis has been or will be 

completed for these activities, and Forest Plan standards and guidelines for invasive plants must be 

considered. Therefore, the cumulative risk of invasive plant spread under all project alternatives is 

expected to be low. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 219 - 
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Hydrology and Fisheries

Introduction

Aquatic Concerns 

Aquatic concerns did not result in a specific issue which drove an alternative, however; the issues do 

affect aquatic resources therefore analysis is necessary. Five general concerns arise. 

• Recreational activities may negatively affect riparian vegetation that plays a key role in streambank

and lakeshore stability, erosional process, water quality and water quantity.

• Outfitted and guided sport fishing may lead to degraded habitats.

• Outfitted and guided sport fishing may negatively affect some species or stocks.

• Outfitted and guided sport fishing may introduce invasive or non-native species.

• Outfitted and guided sport fishing may negatively affect fisheries subsistence activities in fresh water.

It is important to understand that the management and regulation of fish populations is wholly the 

responsibility of ADF&G. Sport fish populations are managed by applying regulations. 

However, because guided use including sport fishing are permitted activities on Forest Service lands and 

because these activities often specifically target certain fish species, it is important for this section to 

consider the effects of these activities on fish populations.

Regulatory Framework 

The Forest Plan (2008) provides strategic direction for lands administered by the TNF. Goals, objectives, 

standards and guidelines provide managers with direction on how to best manage resources. Applicable 

direction is included in Table 3-48. 

Table 3-48: Forest Plan Goals and Objectives applicable to all use areas and activities

Category Goal Objective

Fish

Maintain or restore the natural range and 

frequency of aquatic habitat conditions on the 

Tongass National Forest to sustain the diversity 

and production of fish and other freshwater 

organisms. 

Use baseline fish habitat objectives 

(identified in Fish Forest-wide Standards 

and Guidelines) to evaluate the relative 

health or condition of riparian and 

aquatic habitat.

Fish

Maintain or restore the natural range and 

frequency of aquatic habitat conditions on the 

Tongass National Forest to sustain the diversity 

and production of fish and other freshwater 

organisms.

Design and implement fish habitat 

improvement projects annually across 

the Forest.

Soil and 

Water

Minimize sediment transported to streams from 

land-disturbing activities.

Attain State of Alaska water quality 

standards Forest-wide.

Soil and 

Water

Maintain and restore the biological, physical, and 

chemical integrity of Tongass National Forest 

waters.

Attain State of Alaska water quality 

standards Forest-wide.

Chapter 3 - 220 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Management Prescriptions 

A review of Forest Plan shows all fisheries and Watershed/Hydrology specific standards and guidelines 

apply regardless of the LUD. 

The Forest-wide standards and guidelines for fisheries are located in the Forest Plan are on pages 4-9 

through 4-14 and those for Soil and Water can be found on pages 4-64 through 4-67. 

The following are additional regulatory orders and acts that are applicable to this project. 

Executive Order 12962 – Recreational Fisheries, of 1995. This EO orders Federal agencies, to the extent 

permitted by law and where practicable, and in cooperation with States and Tribes, improve the quantity, 

function, sustainable productivity and distribution of U.S. aquatic resource for increased recreational 

fishing opportunities. 

Fish and Wildlife Act of 1956 (16 U.S.C. 742a-d, and e-j). The Act of August 8, 1956, as frequently 

amended, establishes a comprehensive national fish, shellfish, and wildlife resources policy with 

emphasis on the commercial fishing industry but also with a direction to administer the Act with regard to 

the inherent right of every citizen and resident to fish for pleasure, enjoyment, and betterment and to 

maintain and increase public opportunities for recreational use of fish and wildlife resources. 

Fish and Wildlife Coordination Act (16 U.S.C. 661-666c). The Act of March 10, 1934, authorizes the 

Secretaries of Agriculture and Commerce to provide assistance to and cooperate with Federal and State 

agencies to protect, rear, stock, and increase the supply of game and fur-bearing animals, as well as to 

study the effects of domestic sewage, trade wastes, and other polluting substances on wildlife.

Clean Water Act of 1972. The Act was amended in 1977 and 1987(Public Law 100-4) to protect and 

improve the quality of water resources and maintain their beneficial uses. Section 313 of the Clean Water 

Act and EO 12088 of January 23, 1987 address Federal agency compliance and consistency with water 

pollution control mandates. Agencies must be consistent with requirements that apply to “any 

governmental entity” or person. 

Compliance is to be in line with “all Federal, State, interstate and local requirements, administrative 

authority and processes and sanctions respecting the control and abatement of water pollution.” 

The Clean Water Act (Sections 208 and 319) recognized the need for control strategies for nonpoint 

source pollution. The National Nonpoint source Policy (December12, 1984), the Forest Service Nonpoint 

Strategy (January 29, 1985), and the USDA Nonpoint Source Water Quality Policy (December 5, 1986) 

provide a protection and improvement emphasis for soil and water resources and water-related beneficial 

uses. Soil and water conservation practices (BMPs) were recognized as the primary control mechanisms 

for nonpoint source pollution on National Forest System Lands. The Environmental Protection Agency

supports this perspective.

The Forest Service and the Tongass National Forest must apply best management practices that are 

consistent with the Alaska Department of Environmental Conservation and Environmental Protection 

Agency to achieve Alaska Water Quality Standards. The site-specific application of BMPs, with a 

monitoring and feedback mechanism, is the approved strategy for controlling nonpoint source pollution. 

Executive Order 11990. This 1977 executive order requires the Forest Service to take action to minimize 

destruction, loss or degradation of wetlands and to preserve and enhance the natural and beneficial values 

of wetlands.

Executive Order 11988. This 1977 executive order requires the Forest Service to take action to: 

• Minimize adverse impacts associated with the occupancy and modification of flood plains and reduce

risks of flood loss.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 221 - 
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• Minimize impacts of floods on human safety, health, and welfare. Restore and preserve the natural

and beneficial values of wetlands.

• Other pertinent statues, which conserve, restore and enhance water resources, are also applicable.

Magnuson-Stevens Fishery Conservation and Management Act

• The Magnuson-Stevens Fishery Conservation and Management Act of 1996 requires consultation

with the National Marine Fisheries Service on activities that may affect Essential Fish Habitat (EFH).

EFH is defined as "those waters and substrates necessary to fish for spawning, breeding, feeding, or

growth to maturity." EFH for Pacific salmon includes marine waters, intertidal habitats, and

freshwater streams accessible to anadromous fish. Marine EFH for the salmon fisheries in Alaska

includes all estuarine and marine areas utilized by Pacific salmon of Alaska origin, extending from

the influence of tidewater and tidally submerged habitats to the limits of the U.S. exclusive economic

zone. The Act promotes the protection of these habitats through review, assessment, and mitigation of

activities that may adversely affect these habitats. Individual outfitter guide permits will contain

BMP’s and if necessary mitigation measures to limit impacts.

Analysis Methods 

Analysis and Project Area Boundaries

In this section the project and Analysis Area generally encompasses a 1⁄2 mile inland of all four districts, 

Sitka, Hoonah, Admiralty, and Juneau Ranger Districts. The project area extends further inland where 

specific outfitter/guide activities and locations are accessed from the shoreline. Hereafter, project area and 

Analysis Area are used interchangeably.

The Analysis Area intersects 48 geographic units defined as use areas. The 3 action alternatives include 

winter season allocation for outfitter/guide use as well as newly defined allocations for all other seasons 

across the projects area (Table 3-49). The level of allocation for each use area can vary from alternative to 

alternative but in general, for the action alternative, Alternative 4 has the highest allocations, Alternative 

3 has the lowest and Alternative 2 is the in the middle for the defined use areas. For simplicity of 

analysis, unless specified for specific locations and season, effects analysis will be based on total 

allocations for each alternative.

Table 3-49: Allocation days by season for each alternative 

Season Alternative 1 (No 

Action) Alternative 2 Alternative 3 Alternative 4 

Early 

Spring N/A 5,710 4,445 9,245

Late 

Spring 8,400 4,640 3,595 7,515

Summer 32,225 57,120 44,920 93,015

Fall 6,827 9,430 7,575 15,345

Winter NA 3,405 3,405 5,535

Total 47,449 80,305 63,940 130,655

All three action alternatives include the addition of 7 new LGAs: 

• 04-01B – Big Port Walter Cannery

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Environmental Consequences—Chapter 3

• 04-01B – Sashin Lake Trail

• 04-03 – Shoals Point

• 04-04B – Middle Arm, Kelp Bay

• 04-13 – False Island Camp

• 04-13 – Ushk Bay Head

• 04-16E – Port Althorp – Salt Chuck

LGAs: For ease of analysis, unless otherwise specified, LGAs were analyzed as part of the regular 

allocations for each use area. 

Streams and Lakes: The Analysis Area includes all streams and lakes that fall with a 1⁄2 mile of the 

shoreline. 

Spatial and Temporal Analysis Boundaries 

In order to more clearly analyze effects of outfitted and guided activities on aquatic resources it is 

necessary to define timeframes that would occur within. Short-term effects refer to those occurring 

within, or lasting 5 years or less. Long-term effects refer to those occurring after or lasting greater than 5 

years.

In the Shoreline II O/G EIS project area the typical recreational activities that might affect aquatic 

resources include fishing, hiking, kayaking, wildlife tours, and camping. 

Specific recreational activities are not analyzed for this section. Activity type is not used in determining 

the allocation. Therefore, effects to aquatic resources from guided use will be analyzed within the entire 

project or Analysis Area, not specific to activity type. Analysis will focus on recreational activities 

occurring on streams and lakes, in riparian areas, water quality and how they may affect habitat, species, 

stocks, invasive aquatic species and subsistence fishing in fresh water.

Effects are analyzed as all applicable BMPs are being met. If BMPs were not met, there would be 

additional environmental effects. Monitoring is intended to measure BMP implementation and 

effectiveness and adjustments to outfitted and guided activities would be made based upon this 

monitoring. 

Sources of Information 

Several methods and sources were used during analysis of conditions and alternatives. TNF GIS data was 

used to generate portions of the data reported in tables and text. Numerous site visits and interdisciplinary 

team (IDT) field trips occurred within the analysis and project areas. Observations made during these trips 

added to the specialists’ knowledge of the area. Referred literature and several books were used to provide 

examples of documented effects of dispersed recreation on fisheries and aquatic resources. These sources 

of information were used to describe existing conditions, desired future conditions and as a basis for 

effects analysis.

Level of Effects 

The following definitions are used to describe relative levels of effect.

Minimal–No measureable effects resulting from outfitted and guided activities to other resource areas 

which affect aquatic resources are occurring, and no measurable change in aquatic habitats is detectable.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 223 - 
Chapter 3—Environmental Consequences

Minor–Measurable effects from outfitted and guided activities to other resource areas which indirectly 

affect aquatic resources may be occurring but this effect is not expected to be long-term and is localized 

to a small area.

Major–Measurable effects to aquatic resources resulting from outfitted and guided activities can be 

measured. Major effects resulting from effects to other resource areas are considered indirect and longterm and/or permanent. 

Beneficial–A positive change in the condition or appearance of the resource or a change that moves the 

resource toward a desired condition. 

Adverse–A change that moves the resource away from a desired condition or detracts from its appearance

or condition. 

Direct–An effect that is caused by an action and occurs in the same time and place.

Indirect–An effect that is caused by an action but is later in time or farther removed in distance, but is 

still reasonably foreseeable.

Short-term–An effect that within a short period of time would no longer be detectable as the resource is 

returned to its pre-disturbance condition or appearance. Short-term impacts may range from a few hours 

up to 5 years.

Long-term–A change in a resource or its condition that does not return the resource to pre-disturbance

condition or appearance and for all practical purposes is considered permanent. 

Methodology 

Effects analysis was conducted as follows for each alternative:

• Review actions associated with the alternative. Use services days as the unit of measure for

comparing alternatives.

• Select a use area.

• Assure all applicable BMPs met.

• Group and summarize factors common to all use areas and action alternatives.

• Use aquatic parameters such as turbidity, bank erosion and fish harvested to evaluate effects to

resource.

• Discuss direct and indirect effects specific to each alternative. If necessary break out individual use

areas, otherwise group as “Effects Common to All Recreation Use Areas”.

• Discuss cumulative effects specific to each alternative. If necessary break out individual use areas.

Service days were used as the unit of measure for comparing alternatives.

Affected Environment

Habitat 

A complex interaction of streamflow (discharge) and channel variables (gradient, sinuosity) forms the 

morphology of stream and river systems (Rosgen 1996). Each system has developed over time in a 

manner that they are able to successfully deal with water and sediment coming from within the watershed

(Rosgen 1996). 

Chapter 3 - 224 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Changes, whether from natural causes or man-caused, in the channel variables will cause the channel to 

adjust as necessary to achieve a balance between water and sediment transport. This concept is referred to 

as dynamic equilibrium (Dunne and Leopold 1978). 

Natural processes and human-caused changes have altered all streams within the Analysis Area. Streams 

are better able to adapt to natural changes than man-caused changes because natural disturbances are 

typically low frequency and localized, while man-caused changes are typically higher frequency and 

widely distributed (Swantson 1991). Streams are often not able to effectively deal with these reoccurring 

and wide spread effects.

The project area contains numerous watersheds of varying size and complexity. The streams and lakes are 

physically complex due to the moisture of island and mainland environments, steep topography, variable 

geology and past and present glacial activity. Systems range from single islands to large mainland 

systems.

Overall, systems tend to be resistant and resilient to most disturbances aside from indiscriminant land 

management practices or major natural occurrences like landslides and windthrow. 

Riparian Areas

Riparian habitats are usually densely forested with forest canopies completely shading stream channels. 

Stream banks are often covered by a dense layer of ground cover and shrubs resulting in little to no 

exposure of mineral soil. This small strip of vegetation with in a riparian zone provides a wide range of 

functions including a buffering capability for overland sediment delivery, water temperature and

pollution. 

Desired Condition–The desired condition is to conserve or improve their ability to absorb water, filter 

sediment, and sustain stream channel integrity (FSH 2509.25, zero code). This would be achieved when 

native and desired non-native plant species are well established and robust throughout the riparian zone. 

Water Quality 

The Tongass Land and Resource Management Plan Final Environmental Impact Statement (2008) states 

“The State of Alaska sets water quality standards for chemical, physical and biological parameters for 

waters on National Forest System (NFS) lands. The Alaska Department of Environmental 

Conservation (ADEC) and the Forest Service have agreed that the USDA Forest Service is the agency 

responsible for monitoring and protecting water quality on NFS lands for the purpose of meeting the 

Clean Water Act, as amended. Best Management Practices (BMPs), as described in the Soil and Water 

Conservation Handbook (FSH 2509.22, Region 10 Amendment, July 2006), the Alaska Nonpoint 

Source Pollution Control Strategy, and the Alaska Water Quality Standards (18 AAC 70) together form 

the ‘Forest Service Alaska Region Water Quality Management Plan,’ as agreed to in the Memorandum 

of Agreement dated April 6, 1992 (ADEC and USDA Forest Service 1992). 

With implementation of this Plan, the State of Alaska recognizes that Forest Service BMPs are the 

primary means to protect water quality from nonpoint sources of pollution. In 1997, ADEC determined 

that the Forest Service BMPs meet or exceed the BMPs contained in the Alaska Forest Resources and 

Practices Act and Regulations (11 AAC 95) (Brown 1997)”.

Based upon the above statements and continued implementation of the Forest Plan the water quality in the 

project area is assumed to meet water quality standards.

Desired Condition–The desired condition is to maintain water quality. Continued implementation of 

BMPs would achieve the desired condition for water quality. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 225 - 
Chapter 3—Environmental Consequences

Salmon 

All five species of Pacific salmon are found within the project area. Pink (Oncorhynchus gorbuscha), 

chum (O. keta), sockeye (O. nerka), coho (O. kisutch), and king (O. tshawytscha) salmon can all be found 

at certain times of year in area fresh waters. Though salmon can merit a lengthy discussion because of 

their diversity, ecological and commercial significance and existing knowledge base, the following text 

highlights key features of each species and their relevance to sport fisheries.

Pink salmon are typically the most abundant in terms of sheer numbers, which can substantially fluctuate 

from year to year. They are widely distributed across the Shoreline II O/G EIS project area. They tend to 

prefer lower gradient and larger streams, but can be found in most accessible streams. Though not highly 

pursued by sport fishers, they can offer the angler a sporty fight on light tackle. There is likely little 

harvest of this species by sport fishers because their flesh tends to be pale and soft once they enter fresh 

water in preparation for spawning. 

Chum salmon use similar habitats to pink salmon and share similar life histories. However they tend to be 

less abundant and attain a greater size. Their distribution across the project area is considerably less than 

that of pink salmon. Like pink salmon, they are typically not highly sought after by sport fishers. The 

majority of chum salmon in the project area are raised and released at hatcheries. Many of these salt water 

release sights are managed as commercial terminal harvest locations.

Sockeye salmon are typically found in watersheds containing large lakes as the juvenile of this species 

mostly rears in these habitats. Sockeye have a limited distribution across the project area and run sizes 

usually number a few thousand fish, but can easily surpass 10,000 individuals in some systems during 

good return years (e.g. Redoubt Lake, Clag Bay, Hidden Falls Lake, and Sweatheart Creek). Sockeye are 

highly sought by subsistence fishers. Please refer to the subsistence section for greater detail on 

subsistence fishing. The Snettisham Hatchery south of Juneau, Alaska produces sockeye fry and smolts 

for release at terminal locations (Snettisham hatchery, Sweetheart Lake, Tahltan Lake, Tuya Lake and 

Tatsmenie Lake). These are areas where personal use fishing has become important for the nonsubsistence users in Juneau, Alaska.

Coho salmon can be very aggressive and are highly regarded as a sport fish because of their catchability, 

size, and quality as a food fish. Coho are widely distributed across the project area. They are a very 

successful species largely because they are extremely adaptable and can exploit a wide range of fresh 

water habitats. Runs in this area are likely stable with minimal to moderate fluctuation from year to year. 

Summer run coho are targeted by the guided public. The Macaulay Hatchery on the Juneau Ranger 

District has a terminal harvest location fishery at its facilities for coho salmon but these are not associated 

with Forest Service lands.

King salmon are only found in a few systems in the project area examples include Neka River, Wheeler 

Creek, King Salmon River, Taku River, Mendenhall River, Montana Creek, Fish Creek, and Chilkat river. 

Artificially maintained runs exist due to hatcheries on a few systems however these are not on Forest 

Service lands.

Trout and Char 

Coastal cutthroat trout (Oncorhynchus clarki clarki), coastal rainbow trout (O. mykiss irideus) and Dolly 

Varden char (Salvelinus malma) are the native trout and char species found in southeast Alaska fresh 

waters (Behnke 1992, Behnke 2002). Cutthroat and Dolly Varden are found in both resident (permanent 

stream/lake dwelling) and anadromous (sea-going) populations throughout the area. Both species are 

routinely sought after in sport fisheries. Anadromous varieties can be found in area streams and lakes in 

early spring and fall; these individuals spend their summers at sea taking advantage of the productive 

coastal environments. 

Chapter 3 - 226 - Shoreline II Outfitter/Guide DEIS
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Both resident and anadromous populations are likely stable due to general harvest restrictions published 

by ADF&G in 2010. The ADF&G manages cutthroat for limited harvest and Dolly Varden for liberal 

harvest with additional restrictions in place to protect particularly high quality fisheries. However, it is 

known that cutthroat are particularly susceptible to sport fishing over-harvest, and despite conservative 

restrictions, population declines can still occur when sport fishing pressure increases (Gresswell and 

Harding 1997). 

Steelhead is the anadromous form of rainbow trout, and is a prized sport fish. Steelhead are a popular 

sport fish because they are relatively catchable with a variety of fishing gear, attain large sizes, and are 

extremely hard-fighting. Steelhead tends to prefer medium-sized and larger stream systems with abundant 

areas of turbulent, well-oxygenated flows (i.e., riffles) (Bisson et al. 1988).

Recent data suggest steelhead populations throughout Southeast Alaska were more abundant than they are 

now (Lohr and Bryant 1999; Harding and Love 2008). Population declines in the late 1980s and early 

1990 have prompted ADF&G to restrict steelhead harvest starting in 1994 and continuing to the present 

day. Steelhead densities appear to have had a mixed response to these regulation changes with some 

populations showing increased returns in some years while others remain stable at very low levels 

(Harding and Love 2008).

The Shoreline II O/G EIS project area populations are likely stable with annual fluctuations due to no 

changes in fishing regulations by ADF&G. Regardless, it appears evident that steelhead populations are or 

can be highly sensitive to high levels of sport fishing pressure, especially when regulations allow for 

moderate harvest.

Management Indicator Species 

The 2008 Forest Plan listed four species of fish as MIS. Pink salmon were selected to represent 

anadromous fish that are limited in their freshwater life period by spawning gravel quality and quantity. 

Coho salmon were selected to represent anadromous fish that are generally limited in their freshwater life 

period by stream and lake rearing area. Dolly Varden was chosen because of their ubiquitous distribution 

in freshwater habitats and cutthroat trout because of their dependency on small freshwater streams. 

These species are well distributed throughout the project area in appropriate habitats.

Other Species of Interest 

Eulachon (Thaleichthys pacificus (Girad)) also called hooligan, is one of seven species of smelt

(Osmeridae family) found in Alaska. Eulachon are found in a few mainland river systems of Analysis 

Area. The Berners Bay River (01-04A Use Card), Chilkat River (not on Forest Service lands), and 

Chilkoot Inlet (01-01 Use Card) are the most well know areas on the Juneau Ranger District. Returning 

eulachon are typically found in March and April and not targeted by guided clients.

In 2010 the National Marine Fisheries Service, National Oceanic and Atmospheric Administration

(NMFS) listed the southern distinct population segment of eulachon as threatened under the ESA. The 

listed population segment has a northern boundary of the Nass River in British Colombia. The Berners 

Bay, Chilkat and Chilkoot river populations fall outside of southern distinct population segment area and 

is not protected under ESA. However, since the dramatic decline in southern populations of eulachon, it is 

important to make sure the northern populations are not at risk for future population declines through 

mitigation measures when necessary.

Endangered, Threatened, and Candidate Species 

A review of all Federally listed endangered and threatened fish and wildlife species within Alaska (Table 

3- 50) was completed using existing survey data, GIS layers and databases, communication with research

Shoreline II Outfitter/Guide DEIS Chapter 3 - 227 - 
Chapter 3—Environmental Consequences

personnel, literature reviews, and information in the 2008 Forest Plan FEIS. Species not occurring within 

Southeast Alaska inside waters and/or the southern portion of the Tongass National Forest were dropped 

from further analysis. Species known or suspected to occur within the project area were analyzed further. 

These species are displayed in Table 3-50. There is no critical habitat designated within or adjacent to 

project area.

Table 3-50: Threatened and endangered fish species occurring on or adjacent to the Tongass National Forest

from NMFS

Species/Stock ESU/DPS 

Designation1 ESA Status Likely Ranging Into

Alaskan Waters

Sockeye Salmon (Oncorhynchus nerka) Snake River Endangered Yes

Chinook Salmon (Oncorhynchus 

tshawytscha) 

Upper Columbia River 

Spring-run Snake River 

Spring/Summer-run 

Snake River Fall-run 

Puget Sound

Lower Columbia River 

Upper Willamette River

Endangered 

Threatened 

Threatened 

Threatened 

Threatened 

Threatened

Yes 

Yes 

Yes 

Yes 

Yes 

Yes

Coho Salmon (Oncorhynchus kisutch) Lower Columbia River Threatened Yes

Chum Salmon (Oncorhynchus keta) Hood Canal Summerrun 

Threatened Yes

Steelhead (Oncorhynchus mykiss) 

Snake River Basin 

Lower Columbia River 

Upper Columbia River 

Upper Willamette River 

Middle Columbia River

Threatened 

Threatened 

Threatened 

Threatened 

Threatened

Yes 

Yes 

Yes 

Yes 

Yes

Green Sturgeon

(Acipenser medirostris) Southern DPS Threatened Yes

Subsistence Fishing 

Subsistence and personal use harvest of fishes occurs in both marine and freshwater environments. The 

State of Alaska manages all personal use and subsistence harvest in saltwater, and through delegation by 

the Federal Subsistence Board the Tongass National Forest regulates the subsistence harvest of fishes 

within the fresh waters of its jurisdiction.

The Alaska Department of Fish and Game is responsible for the sustainability of fish and wildlife on all 

lands in Alaska and uses emergency orders to protect that sustainability when necessary. In addition to 

allocating fish and wildlife among all user groups, the Alaska Boards of Fisheries and Game provide a 

subsistence preference on all lands and can address both direct and indirect effects on fish and wildlife. 

The Federal Subsistence Board assures a priority for subsistence use among consumptive uses of fish and 

wildlife by rural residents on federal lands.

There are several known personal use and subsistence harvest areas in fresh waters within the Analysis 

Area. These areas have the highest potential to be adversely affected by guided use sport fishing.

Sockeye salmon are the species harvested the most in subsistence and personal use fisheries in the project 

area. However, these areas such as Redoubt Lake are typically not permitted for outfitter/guide use (Table 

3-51).

There is little subsistence or personal use harvest of any other salmonid across all districts (Table 3-51).

Chapter 3 - 228 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Table 3-51: Reported subsistence and personal use fisheries data from unpublished ADFG data 

Year Number

of Permits Chinook Sockeye Coho Chum Pink 

2010 893 65 18,708 831 205 792

2011 779 109 15,875 814 107 1,442

2012 912 93 21,776 714 176 736

2013 997 49 21,986 613 193 588

2014 806 54 15,879 513 240 698

Invasive Species 

There are no known invasive species such as New Zealand mud snail, Quagga mussel or whirling disease 

present. 

Atlantic salmon (Salmon salar) have been captured in salt waters adjacent to the Analysis Area as well as 

a few locations in fresh water. This Atlantic Ocean species is reared in net pen farms in British Columbia, 

Canada and the individuals captured in southeast Alaska are thought to be escapees. No spawning Atlantic 

salmon have been documented within the Analysis Area. If Atlantic salmon were to become established in 

waters in the Analysis Area they represent a serious competitive factor for the native salmonids. Escaped 

cultured Atlantic salmon present a risk to interbreed and compete with native species, introduce or spread

pathogens and may to some extent increase mortality and decrease fitness of wild fish (Naylor et al. 2005; 

Jonsson and Jonsson 2006). 

Desired Condition–The desired condition is to maintain or improve habitat conditions to ensure 

sustainable use. This will aid in maintaining viable populations of native and desired non-native species. 

It will also reduce the risk of threats from invasive aquatic species.

During the life of this document (10 years) small site specific areas are likely to be impacted by outfitted 

and guided activities. As these sites are discovered, each will require evaluation by the district fish 

biologist to determine what impacts are occurring. If warranted, site-specific mitigations will be 

developed and implemented to return the site to conditions similar to pre-disturbance. 

Successful implementation of Forest Plan standards and guidelines and BMPs (FSH 2509.22, R-10 

Supplement) will aid in achieving desired conditions. 

Environmental Consequences

Review of Potential Effects from Recreational Activities 

This section illustrates the range of direct and indirect effects considered during effects analysis. The 

effects reviewed are some of the most common. This is not a comprehensive review of effects of 

recreational activities on aquatic resources. This review is not an effects analysis. Analysis of effects 

occurs in a later section. 

Recreation has documented and demonstrated effects on aquatic resources (Clark and Gibbons 1991). The 

relationship between fish and varying components of their habitat has been extensively studied. 

Examples from the Pacific Northwest include Bjornn and Reiser (1991), Bisson et al. (1991), Quinn and 

Peterson (1996), Beechie and Sibley (1996) and Rosenfeld et al. (1999). A literature search can result in 

hundreds of peer-reviewed articles. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 229 - 
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The effects of sport angling on salmonids fish have been well-studied. The effects of hooking mortality 

and angler induced stress are reported in Warner (1978), Dotson (1982), Nuhfer and Alexander (1992), 

Bendock and Alexandersdottir (1993), Schill (1996) and Meka (2004) as well as numerous other 

publications. 

What is less easy to demonstrate are the indirect effects recreation has on fish due to habitat alteration. 

Hicks et al. (1991) presents a more thorough discussion of responses by salmonids to habitat changes. The 

authors cover responses of salmonids to changes in habitat specific components such as temperature, 

large woody debris, stream flow as well as their response to forest management and natural processes 

such as geology and climate.

Research has documented recreation caused effects to riparian vegetation (Marion and Cole 1996) which 

in turn can indirectly affect fish habitat and fish. Riparian vegetation plays a critical role in influencing 

the health and condition of fish habitat and aquatic communities.

Binns and Eiserman (1979) found cover a significant predictor of biomass in Wyoming trout streams. 

Li et al. (1994) reported a negative correlation between trout abundance and solar input. Campbell et al. 

(2011) found timber harvest intensifies the effects of spawning salmon disturbance of macroinvertebrates.

Fuchs et al. (2003) found riparian timber harvest to enhance primary and secondary production in subboreal forests in British Columbia and suggested this increase may only be evident for the first two 

decades following harvest.

Piccolo and Wipfli (2002) found young red alder (Alnus rubra) to produce significantly more numbers 

and biomass densities of macroinvertebrates than young-conifer, old red alter or old conifer riparian 

zones. The authors suggest an alder component be maintained in previously harvested riparian areas to 

potentially offset negative effects of timber harvest such as sedimentation and loss of large woody debris 

recruitment on the downstream salmonid-bearing food webs. 

The above studies are a few examples of the volume of research conducted on the intricate and complex 

interactions between fish, aquatic habitats and upland influences. 

Connected Actions, Past, Present, and Foreseeable Activities 

Relevant to Cumulative Effects Analysis 

The list of past, concurrent and reasonably foreseeable actions in the DEIS was used to determine actions 

relevant to cumulative effects analysis for fisheries resources.

Activities considered relevant

Timber Sales– Timber sales and associated activities such as road construction have occurred within the 

Analysis Area. Past timber harvest has contributed to the existing conditions seen today. Based upon the 

documented effects of timber harvest, especially timber harvest and road construction, on hydrological 

resources and its ultimate effects on fish and fish habitat it was determined these actions were relevant to 

cumulative effects analysis for all alternatives. There are no proposed timber sales in immediate project 

area and therefore no additional effects from future harvest activities.

Activities not considered relevant to cumulative effects

Energy Projects– There are 18 energy projects within the Analysis Area; 12 FERC hydroelectric, 6 nonhydro, 1 geothermal and 1 wind energy feasibility projects. These projects are at varying stages in the 

licensing process and have all gone or will go through their only effects analysis. The construction of a 

dam and resulting flooding of existing fish habitats have documented effects to fish and fish habitats. It is 

unknown what the impact of guided use would be in these areas. Use could increase or decrease 

depending on the condition of the reservoir and the fishery following flooding. Any incremental impact 

Chapter 3 - 230 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

that guided use would have on these areas would be masked by the large level impact that is associated 

with energy projects. Additionally, a large number of these energy projects are either considered low 

interest areas by outfitters guides and/or are outside the designated Shoreline II O/G EIS project area. 

Therefore it was determined no further cumulative effects analysis was necessary with energy projects.

Mining Projects by District

Juneau Ranger District

Kensington: There is an existing large underground gold operation, and yearly surface exploration 

drilling. Current expected mine life is 10-12 years 

Herbert Gold Project: There is an existing surface exploration drilling. The potential for moving to 

advanced exploration or development is low. There is no other really foreseeable locatable development. 

Admiralty Ranger District

Greens Creek: There is an existing large underground polymetallic operation, and yearly surface 

exploration drilling. Current expected mine life is 10-12 years.

Hoonah Ranger District

There is no existing or foreseeable large locatable development. There is the potential for small scale 

operations or surface exploration exists; however that is probably unlikely. 

Sitka Ranger District

There is no existing or foreseeable large locatable mining development. There is some proposed small 

scale operations. The potential for small scale operations or surface exploration drilling exists.

Impacts from Activities Adjacent to NFS Lands

The majority of non-NFS lands are downstream of NFS lands and impacts to hydrological resources and 

those effects on fish and fish habitats are not expressed on NFS lands. 

Saltwater Conditions

Guided use on saltwater does not affect fresh water under the jurisdiction of any of the four ranger 

districts. This action is not relevant to cumulative effects analysis. 

State of Alaska administrative camps

These field camps are permitted under special use permits and are subject to BMPs and standards and 

guidelines. The inclusion of this direction negates impacts to fisheries resources therefore no cumulative 

addition to authorization of guided use would occur. This action is not relevant to cumulative effects

analysis. 

Construction and Reconstruction of Developed Recreation

Any new construction or reconstruction is subject to implementation of BMPs and standards and 

guidelines. Successful implementation of these measures negates impacts to fisheries resources therefore 

no cumulative addition to authorization of guided use would occur. This action is not relevant to

cumulative effects analysis.

Recreation Cabin Decommissioning

The decommissioning of cabins would not affect aquatic resources. There would be no cumulative impact 

when combined with authorization of use. This action is not relevant to cumulative effects analysis.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 231 - 
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Changes in Recreational Visitor Numbers

Changes in the number of visitors affect the outfitter/guides, but are outside the control of the Forest 

Service. This EIS allocates service days to outfitter/guides and ends there. There would be no cumulative 

impacts. This action is not relevant to the cumulative effects analysis. 

Katlian Road construction on Baranof Island

This activity would occur on both Forest Service and non-NFS lands. The effects of the construction of 

this road are not fully known. There is a probability that once the road is completed an outfitter/guide may 

use it to access a permitted area. This activity would not add cumulatively to guided use on NFS lands. 

Effects Common to All Action Alternatives 

Riparian and stream systems are complicated and dynamic making it difficult to write the exact effects 

recreation activities has on them. However, it is generally accepted that recreational activities can affect 

water resources (Clark and Gibbons 1991), which in turn affect fisheries. These indirect and complex 

linkages warrant an effect analysis.

The following description of effects assumes Forest Plan direction and applicable BMPSs are being 

followed and met. If standards, guidelines and BMPs were not being met there would be additional 

environmental effects not considered in this document. 

The assumption that increased levels of guided use cause a higher risk to aquatic resources is used in the 

following analysis. This assumption allows comparison of the alternatives, which provides information 

useful to the reader and the decision maker. Other assumptions include unregulated unguided recreation 

will occur and the capacity would not be exceeded in any recreation use area. 

Allocation 

The action alternatives, Alternative 2 through Alternative 4, would cause effects to aquatic resources. 

Regardless of percent of capacity or actual number allocated the same Forest Plan direction and BMPs

would be applied with the intent of minimizing or negating effects. However, risk of affecting aquatic 

resources differs due to differing allocations.

These differences are addressed later.

Based upon the types of recreational activities occurring in the Shoreline II O/G EIS project area and 

knowledge of district personnel it is realistic to suggest recreational activity produces similar influences, 

causes and impacts to aquatic resources as those documented in research.

Many of the effects to aquatic resources are indirect effects and would be expressed following effects to 

other resource areas Guided use would cause removal and damage to streamside vegetation, and affect 

channel morphology. Activity would also affect water quality. Activity would not affect water quantity. 

The influences of recreational activities on and response of hydrologic resources is dependent on many 

linked causative agents (Clark and Gibbons 1991). 

These causative agents would lead to a wide range of impacts. The impacts include, but not are limited to 

streambank and lake shore alteration, increased erosion, increased sedimentation, increased water 

temperature and increased pollution (Clark and Gibbons 1991).

Guided sport fishing would affect fish within the Analysis Area. Individuals would be harvested as well as 

be subjected to low-level mortality from catch-and-release fishing (Muoneke and Childress 1994, 

Bartholomew and Bohnsack 2005). However, the number of fish actually harvested by guided sport 

fishing in freshwater is minimal and the angler-induced mortality resulting from catch-and-release fishing 

does not appear to affect populations. Salmon and trout populations appear stable (allowing for annual 

Chapter 3 - 232 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

population fluctuations) across the Analysis Area and the majority of salmon harvest occurs in salt waters 

outside the jurisdiction of the Forest Service. 

The risk and level of impact to aquatic resources from outfitted and guided activities would vary across 

the Analysis Area, and would be most severe in areas that are heavily used, in high demand, provide easy 

access, have existing infrastructure and are sensitive to impacts associated with recreational activities 

(Clark and Gibbons 1991, Lewin et. al. 2006). Despite the acknowledged effects, the action alternatives 

are designed to meet or exceed Forest Plan standards and guidelines, thus minimizing risk.

The following summarizes effects of the action alternatives on components of the aquatic resource area 

and fish. 

Habitat

Recreational activity would affect channel morphology within and downstream of the location of use. 

Recreational activity is known to affect many aspects of channel morphology, displace fish and 

potentially damage spawning redds (Roberts and White 1992, Clark and Gibbons 1991, Lewin et. al. 

2006).

The action alternatives would continue to contribute minimal to minor amounts of sedimentation to 

streams and lakes. Localized effects would be most obvious in pools, backwaters and mouths of streams 

entering lakes. It is expected this minor effect would not be detectable over background levels a short 

distance downstream or on deltas. Periods of higher flow would scour these areas and redistribute the 

sediment. As a result, it would be unlikely to detect changes in fine sediment and attribute them to 

recreational use. Bank destabilization (i.e. bank slumping) is likely to occur in heavily used access and 

fishing sites. To mitigate for these effects Adaptive Management measures will be used and appropriate 

BMP’s and mitigation measure will be implemented. Displacement and damaging of spawning redds will 

be greatest in heavily used area. To mitigate for this Adaptive Management protocols will be used to limit 

the level of affect.

Water Quality

In all alternatives, recreational activities would continue and inadequate disposal of human waste is the 

main way in which dispersed recreation can affect water quality (MacDonald et. al. 1991). Water 

pollution from human waste is typically described by the number of fecal coliform bacteria present (Clark 

and Gibbons 1991). Fecal coliform bacteria are also present in animal waste. This effect would be 

localized to streams and lakes, and current levels of bacteria are unknown. Bacteria levels would be 

expected to be highest in areas where human use is highest. It is thought water quality is within State 

guidelines for fecal coliform.

No action alternatives would change the risk of bacterial contamination from human waste. Meeting 

BMPs and proper management of human waste would negate the risk of recreational activities leading to 

a measurable degradation in water quality.

Sediment yields can also accelerate when a watershed is affected by urbanization, road construction, 

timber management, or livestock grazing. This acceleration usually results in some level of degradation to 

water quality and watershed health in the form of non-point source pollution as sediment. None of these 

activities is proposed, and effects of increased sediment yield from these activities do not need further 

analysis.

A minor risk to water quality occurs from implementing any of the action alternatives. Measurable 

impacts to other resource areas may occur in localized and disjunct areas, however no measureable impact 

to water quality would occur if BMPs and Standards and Guidelines were met.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 233 - 
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Riparian Areas

Guided use would affect vegetation with in the riparian zone. Physical damage to vegetation by trampling 

would occur. Removal of vegetation would occur in small localized areas such as campsites, user 

generated trails and stream access points. Damage and loss of vegetation can lead to a wide range of 

responses in the riparian area as well as the stream (Kauffman and Krueger 1984, Abouguendia 2001). 

Responses include but are not limited to; decreased water quality, increased water temperature and 

alteration of stream flow patterns. The effects of these responses may include reduced dissolved oxygen 

levels, increased risk of disease bearing pathogens being present in the water, increased evaporation, 

alteration of food webs and a reduction or loss of habitat for aquatic species. 

Current riparian conditions show minor effects. Visual effects to streamside vegetation are present; 

however, no measurable changes in channel morphology, or water quality resulting from guided use are 

known to occur thus no impacts to fish or fish habitat resulting from riparian condition altered by guided 

use is known to occur. 

Salmon

Harvest and delayed morality of salmon would occur because of guided sport fishing. The level of harvest 

and incidental mortality are low enough to maintain self-sustaining populations. Kings salmon are 

uncommon and due to small run sizes, the ADF&G prohibits fishing for them in freshwater systems on 

the Tongass. Coho salmon are the most abundant of the targeted species by outfitted and guided sport 

anglers and are the species most likely to be subjected to these effects. Pink, chum and sockeye are not 

targeted as much as coho due to their reduced desirability (pink, chum) or reduced success in capturing 

(sockeye) on sport angling gear in fresh waters. ADF&G data shows low levels of salmon harvest in fresh 

waters in the Analysis Area. 

Trout and Char

Harvest and delayed mortality of trout and char would occur as a result of guided sport fishing. Cutthroat 

and Dolly Varden are captured as incidental catch while angling for steelhead or salmon. The level of 

harvest and incidental mortality are low enough to maintain self-sustaining populations of resident trout, 

steelhead and Dolly Varden across the Analysis Area. 

Threatened, Endangered and Sensitive Species

Guided use would not affect TES species in fresh waters because there are no TES species present. There 

is a small potential that some TES species might get displaced from the near shore marine environment 

due to recreational access. However, this disturbance is expected to be negligible and have no effect on 

populations. Sport fishing in the marine environment is likely to increase as recreational opportunities 

increase but ADF&G regulates harvest limits of sports fisheries and will be able to mitigate such effects. 

Further analysis is not required.

Management Indicator Species

Management Indicator Species would be affected by outfitted and guided use. The effects would be the 

same as those discussed under the Salmon and Trout and Char headings in this section. 

ANILCA 

In compliance with Title VIII of the Alaska National Interest Lands Conservation Act of 1980 (ANILCA), 

this section also analyzes the potential effects of proposed land use activities on subsistence uses and 

needs, and includes a distinct finding on whether the Proposed Action may significantly restrict 

subsistence uses for fisheries.

Chapter 3 - 234 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

This subsistence analysis tiers directly to the Forest Plan standards and guidelines for subsistence (USDA 

FS 2008a), the Forest Plan FEIS (USDA FS 2008b), and the Forest Plan Supplemental EIS (SEIS) 

(USDA FS 2003). The FEIS and the SEIS contain in-depth discussions on the history of subsistence use 

and community information. 

Subsistence Fishing

Outfitted and guided recreational activities have the potential to negatively affect subsistence and

personal use fisheries activities several ways. Four components should be addressed when analyzing 

impacts to a subsistence resource. The components are Abundance, Distribution, Competition and Access. 

Abundance of trout, salmon and char would not be affected by guided use in such a manner that impacts 

to subsistence activities would be measurable. For example, sockeye salmon are highly desired for their 

qualities as a food fish and both guided use and subsistence users may target this species. Sport anglers 

also target sockeye on occasion.

Reported harvest of sockeye by permitted outfitter/guides was less than 80 fish during the period 2010- 

2014. Approximately 94,000 sockeye were harvested in the same period by subsistence and personal use 

individuals. Exact numbers of subsistence-harvested salmon cannot be reported due to certain laws. 

Although subsistence harvest of sockeye does occur in fresh water, the majority occurs in salt waters. 

Regulation of fisheries in salt waters is outside the jurisdiction of the Forest Service. 

Distribution of trout, salmon and char would not be affected by guided use. Recreational activities

authorized under special use permits are not ground disturbing and would not affect fisheries in a manner 

to alter their distribution across the project area.

Competition for salmon could occur, however; the above sockeye example shows little potential for 

competition. Harvest is low by guided clients as well as subsistence users and the sockeye population 

within the Analysis Area is large enough to support this type of harvest. Based upon the reported harvest 

by guided clients and subsistence users there is no concern that competition for a fisheries resource would 

occur. Focusing on fresh waters shows there is a low potential for overlap between guided use and 

subsistence users. The lack of overlaps results in no competition for a fishery resource within the Analysis 

Area. 

Access to fisheries resources by subsistence users would not be affected by this NEPA decisions. This EIS

does not regulate unguided users therefore; access to fisheries resources would not be affected.

Despite no impacts to abundance, distribution, competition or access there is a social concern that guided 

use could impact subsistence users. This social issue would occur if guided users and subsistence users 

were in an area at the same time. Social conflicts could occur and currently there is no direction or 

regulation to reduce the risk of this effect. This is a social issue, not a resource issue and is addressed 

elsewhere within the project record. 

Invasive Species

There are no known invasive species present, in fresh waters within the Analysis Area. However, guided 

sport fishing poses a risk of introducing an invasive species like New Zealand mud snail, or whirling 

disease. These aquatic invasive can be transported on fishing gear and remain viable for a considerable 

length of time when removed from water.

Shoreline II Outfitter/Guide DEIS Chapter 3 - 235 - 
Chapter 3—Environmental Consequences

Effects Specific to Each Alternative 

Alternative 1 - No Action: Direct and Indirect Effects Common to All 

Recreation Use Areas 

Alternative 1, the No Action Alternative would implement current outfitter /guided use special use

permits under existing regulations and permit stipulations. The inclusion of BMPs and Forest Plan

direction would minimize effects to aquatic resources.

Effects to aquatic resources would continue. Describing the exact level of effect is not possible due to the 

indirect nature of cause-and-effect relationships between recreational activities and fisheries. Trout char 

and salmon would be subjected to harvest and a minimal level of indirect mortality caused by catch-andrelease fishing. The direct effects of vegetation loss from high levels of foot-traffic would continue but 

through proper use of BMPs these effect would be minor. Indirect effect from stream bank vegetation 

loss, sediment erosion and decrease water quality, would affect fish habitat and individual fish. However, 

these indirect effects would be minimal. Heavily used areas within the riparian zone would be most likely 

to contribute to affects to aquatic resources.

Subsistence Fishing– Implementation of Alternative 1 would not affect subsistence fishing. Authorizing 

guided use within the project area would not affect the abundance or distribution of fish. This alternative 

would not limit access nor would it directly create competition for a fishery resource.

There would be a social issue if guided users and subsistence users overlapped in time and space.

Alternative 2 – Proposed Action: Direct and Indirect Effects Common to All 

Recreation Use Areas 

Alternative 2, the Proposed Action, allocates increased recreational use to outfitter/guides across the 

project area, guide allocations apply and Adaptive Management would be implemented. It needs to be 

noted that the carrying capacity for this alternative does increase throughout the project area but not all 

use areas experience the same incremental increases in service days. In fact for all the action alternatives 

some use areas might experience a slight decrease or increase in user access dependent on the season, 

however, in general as service days allocation increase or decrease with each alternative so does the total

service day allocations for individual use areas. Therefore when the analysis was conducted for each 

alternative the total allocation across all seasons was evaluated as a whole. Approximately 12.6 percent 

(80,305 service days) of the anticipated project area capacity is allocated to outfitted/guided use in this 

Proposed Action. 

Because the Proposed Action allocates increased recreational use to outfitter/guides across the project 

area it would have a larger effect on aquatic resources than the No Action alternative. As guided use 

increases for a use area there is an increasing negative effect to aquatic resource. The more people in a use 

area the higher the potential for fishing stress and pressure on stream banks, which leads to vegetation 

loss and causes elevated sediment erosion and lowers water quality. However, stream systems are quite 

dynamic and appropriate BMPs and Forest Plan directions would be implemented to minimize these 

effects. Therefore the direct effect of vegetation loss would be minor and the indirect effects of sediment 

erosion and reduced water quality would be minimal. This alternative is the middle ground of the 

alternatives regarding risk of affecting aquatic resources, including Alternative 1, the No Action

Alternative. 

Subsistence Fishing– Implementing Alternative 2 would not affect subsistence fishing. The reasons for 

this are the same as described in Alternative 1 and Effects Common to All Action Alternatives. As noted 

above, Alternative 2 represents the middle ground for allocation of service days to outfitter/guides but 

even with increase use there would be no effect on abundance or distribution of fish. Subsistence fishing 

Chapter 3 - 236 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

activities are known to occur in these recreation use areas and social interactions between guided users 

and subsistence users would occur.

Alternative 3: Direct and Indirect Effects Common to All Recreation Use 

Areas 

Alternative 3 allocates 8.6 percent (63,940 service days) of all recreational use to outfitter/guides across 

the project area, carrying capacity applies and Adaptive Management would be implemented. 

Effects to aquatic resources would be similar to the effects described in Alternative 1 and 2. However, 

when compared to the other action alternatives (2 and 4), Alternative 3 proposes the lowest level of 

outfitter/guide use and therefore has the lowest risk of affecting aquatic resources. The direct effect would 

be minor and all indirect effects would be minimal.

Subsistence Fishing –Of the action alternatives Alternative 3 allocates the lowest level of use to outfitted

and guided clients and it would not affect abundance and distribution of fish, nor would it limit access or 

create direct competition for a resource. Subsistence fishing activities are known to occur in these 

recreation use areas and social interactions between guided users and subsistence users would occur. 

Alternative 4: Direct and Indirect Effects Common to All Recreation Use 

Areas 

Alternative 4 allocates 20 percent (130,655 service days) of all recreational use to outfitter/guides across 

the project area, carrying capacity applies and Adaptive Management would be implemented. 

Effects to aquatic resources would be similar to the effects described in Alternative 1, 2 and 3. However, 

Alternative 4 has the highest risk of affecting aquatic resources when compared to the other alternatives 

(1, 2 and 3). This alternative allocates the highest number of service days to guided use, increasing the 

risk of guide use impacting aquatic resources. Even though the risk to aquatic resources is highest with 

this alternative through proper use of BMPs and Forest Plan directions, the direct effects would be minor 

and all indirect effects would be minimal. 

Subsistence Fishing– Alternative 4 would not affect the subsistence fishery resource for the same reasons 

described in Alternative 2 and Alternative 3. It does authorize guided use and social encounters would 

occur between the two groups. This alternative has the highest risk of creating a situation where a social 

issue would occur due to the increase number of service days being allocated to outfitter/guides. 

Cumulative Effects

Although most impacts occur at the approximately 575 documented recreational sites, a clearer picture of 

watershed condition is obtained by looking at the watershed scale. 

Historic and current land management practices including past timber harvest has contributed to the 

existing condition in the Analysis Area. However, the continuation of guided recreational use under this 

alternative would have minor effect on aquatic resources. Additionally, as identified in all alternatives, 

these effects would be in the form of loss of vegetation cover and lowered water quality. Best 

management practices and Forest Plan direction would be implemented and would provide adequate 

protection for aquatic resources. 

Essential Fish Habitat 

Essential fish habitat (EFH) is the water and substrate necessary for fish spawning, breeding, feeding, or 

growth to maturity. The marine EFH in Alaska includes estuarine and marine areas from tidally 

submerged habitat to the 200-mile exclusive economic zone (EEZ). The freshwater EFH includes streams, 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 237 - 
Chapter 3—Environmental Consequences

rivers, lakes, ponds, wetlands and other bodies of water currently and historically accessible to salmon. 

EFH for Pacific salmon recognizes six critical life history stages: (1) spawning and incubation of eggs, (2) 

juvenile rearing, (3) winter and summer rearing during freshwater residency, (4) juvenile migration 

between fresh water and estuarine rearing habitats, (5) marine residency of immature and maturing adults, 

and (6) adult spawning migration. Habitat requirements within these periods can differ significantly and 

any modification of the habitat within these periods can adversely affect EFH.

Section 305(b) (2) of the Magnuson-Stevens Fishery Conservation and Management Act states that all 

federal agencies must consult the National Marine Fisheries Service (NMFS) for actions or proposed 

actions that may adversely affect EFH. The Act promotes the protection of EFH through review, 

assessment, and mitigation of activities that may adversely affect these habitats. On August 25, 2000 the 

Forest Service, Alaska Region, and NMFS came to an agreement on how consultation will be 

accomplished in Alaska.

This EIS satisfies the consultation requirements by providing a description and assessment of EFH in the 

project areas, a description of each alternative and its potential impacts on these habitats, and a 

description of the mitigation measures that would be implemented to protect these habitats. The formal 

consultation will start when NMFS receives a copy of the EIS with the EFH Assessment. NMFS may then 

respond in writing as to whether it concurs with the findings of the assessment or make conservation 

recommendations. The USDA Forest Service must respond to any recommendations made by NMFS 

within 30 days. 

The streams and lakes within the project area support a variety of anadromous and resident fish species. 

Anadromous species that spawn in freshwater streams or lakes in the project area include: pink salmon 

(Oncorhynchus gorbuscha), chum salmon (O. keta), sockeye salmon, (O. nerka), coho salmon (O. 

kisutch), Chinook salmon (O. tshawytscha), coastal cutthroat trout (O. clarkii), steelhead (rainbow) trout 

(O. mykiss), and Dolly Varden char (Salvelinus malma). The project area also supports resident 

populations of coastal cutthroat trout, rainbow trout, Dolly Varden char, and non-game fish species 

including sculpin (Cottus spp.) and three-spined stickleback (Gasterosteus aculeatus).

The Analysis Area provides a large amount of EFH and includes all of the fresh waters within. Since no 

alteration of Marine Access Facilities is being proposed for any of the action alternatives, marine habitats 

would not be affected and are therefore not analyzed with this EIS. 

Conclusions 

The Forest Service believes that the Shoreline II Project may adversely affect EFH. However, the effects 

to aquatic resources, as described in the EIS and specialist reports, will be minimal or virtually 

immeasurable. By implementing Forest Plan Standards and Guidelines, Best Management Practices, and 

Outfitter and Guide permit stipulations, effects to EFH should not occur. Additional impacts to EFH may 

occur only from unforeseen events. 

Adaptive Management and Mitigation Measures 

All the concerns identified through the effects analysis might be avoided if properly monitored and 

appropriate mitigation measures are used, even with the implementation of the Adaptive Management 

strategy. See Appendices A, B and C for specific mitigation measures. 

Table 3-52: Resource indicators and mitigation measures for potential concerns

Resource: Indicator Monitoring Threshold/Trigger Adaptive Action

Stream bank erosion

Monitor the use 

area and heavily 

used access point 

Bank slumping and/or 

loss of vegetation leading 

to the exposure of bare 

Require guides to monitor and report 

use areas and site within these areas 

that have exceeded these thresholds.

Chapter 3 - 238 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Resource: Indicator Monitoring Threshold/Trigger Adaptive Action

along the stream. soil in more than 10% of 

the stream bank area. Mitigation

Change access sites.

Develop rotating access sites with long 

periods of rest and short periods of use.

Potentially utilize game trails to access 

the stream channel. 

Fish displacement

Monitor heavily 

used in-stream 

fishing spots.

Limit fishing time to less 

than 30 minutes in one 

location.

Require guides to monitor and report 

use areas and site within these areas 

that have exceeded these thresholds.

Mitigation

Develop outfitter/guide communication 

to encourage fisherman to not to over 

fish any one location.

Avoid standing in heavy populated fish 

area. Instead find a location away from 

the area and fish to the spot.

Spawning redd 

disturbance/destruction

Monitor heavily 

used in-stream 

fishing spots.

Salmonid eggs turned up 

from substrate 

disturbance.

Require guides to monitor and report 

use areas and site within these areas 

that have exceeded these thresholds.

Mitigation

Develop outfitter/guide communication 

to encourage fisherman to avoid 

disturbing spawning redds. 

Develop outfitter/guide communication 

to encourage fisherman to “tread 

lightly.” Communicate the importance of 

avoiding spawning areas and to walk 

softly when traveling in the stream.

Soils

Introduction

Soils are the foundation of terrestrial ecosystems. Soil absorbs nutrient-rich water and releases it to form 

microorganisms and plants, which become food and habitat for larger animals and people. Soils are a nonrenewable resource because of the time it takes them to form. There are many types of soils, and their 

specific properties determine the type of ecosystem they support and their resiliency to land management. 

Affected Environment

Although recreational and guided use on the shoreline project area is apparent and abundant, they are very 

low-impact. There is often little-to-no evidence of human impacts except in a few, highly-used places. 

These areas showing the highest damage to soils and wetlands share some similar traits: they are usercreated trails through wetlands or other sensitive, generally nonforested, areas. Impacts from users are 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 239 - 
Chapter 3—Environmental Consequences

typically found in the LGAs where user-created trails cross either wetlands or streams. A discussion of the 

wetland types for each use area is in the Soils and Wetlands resource report in the project record. 

Past outfitter/guide use has not resulted in any reported significant impacts on soils or wetlands within the 

project area. Where soil erosion and puddling is associated with developed recreation activities it has been 

identified and mitigated. Mitigation involves rerouting trails or hardening trails or campsites.

There are two areas of recreation use that currently have a severe level of effects on the soil resource. 

These are Fox Creek on Hoonah District and Williams Cove on Juneau District. Both areas have wide, 

user-created trails through easily-rutted, sensitive soils. The west trail in Williams Cove has been 

monitored since 2004 by district personnel. The trail looks about the same now as in 2004 and 

outfitter/guides using this trail are careful to keep the trails from getting wider and muddy.

Soil types 

Soils across the project area vary greatly in their ability to support foot traffic without becoming muddy 

(soil puddling). Erosion is a concern where foot traffic occurs on streambanks or on slopes adjacent to 

live streams. Most well drained soils on gentle, forested slopes have a thick duff layer and the duff layer 

over tree roots can support foot traffic without rupturing or becoming muddy. On steeper slopes the duff 

layer is naturally thinner and more susceptible to disturbance from foot traffic or vehicle traffic. Nonforest wetland soils, estuaries, and beaches often have very low bearing strength due to high soil moisture

and lack of woody roots to support traffic.

These non-forested wetlands, estuaries, and beaches are considered sensitive soils for the Shoreline 

project area.

Environmental Consequences

Direct and Indirect Effects 

There is no difference between the No Action (Alternative 1) and any of the action alternatives 

(Alternatives 2 through 4). The action alternatives create new LGAs: Port Althorp, Head of Bay; Port 

Althorp, Salt Chuck Bay; Middle Arm, Kelp Bay; Sahsin Lake Trail; Shoals Point; and Ushk Bay. All 

alternatives are expected to have a slight level of effect to the soil resource. Trampling and disturbance 

from foot traffic will occur in discreet areas throughout the project area in all alternatives but will be 

minor. 

Adverse effects on the soil resource are not anticipated from proposed activities. No ground disturbing 

activities are proposed. Minor losses of vegetation may occur in some places from heavy foot traffic. If 

soil erosion is noted in future monitoring, a Tongass soil scientist should be notified and mitigation 

developed. However, other than those areas previously discussed, there are no existing effects or effects 

from activities to soils from any alternative.

Implementation of project design elements and mitigation measures is expected to be highly successful in 

preventing resource damage.

Sensitive soils are found in beaches, estuaries and non-forested wetlands. More than half of the area in the 

Fanshaw, Fowler Creek, Mallard Cove, and Sand Bay LGAs has sensitive soils. All of these are existing 

LGAs. Note that the Fox Creek and Williams Cove LGAs exhibit soil disturbance but do not necessarily 

have a high percentage of sensitive soils.

Port Althorp, Head of Bay and Port Althorp, Salt Chuck Bay are proposed, unhardened LGAs. The other 

proposed LGAs are all hardened. Existing, hardened LGAs are: Corner Bay Road, Eight Fathom Dock, 

False Island Camp, George Island, Hanus Bay, Kennel Creek, Salt Lake Bay Dock, and Sitkoh Bay Road. 

Chapter 3 - 240 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

Cumulative Effects

Alternative 1 would have the same effects cumulatively as alternatives that are increasing the overall use 

days, from what is being implemented from the Shoreline 2004 O/G EIS. All the alternatives would cause 

slight effects to soil resources.

Past and current recreational activity and land management practices, including past timber harvest, have 

contributed to the existing condition in the Analysis Area. The continuation of guided recreational use 

under these alternatives would not add cumulatively to those impacts. Because effects would be so slight, 

they would not add cumulatively to effects from timber sales, hydropower development or mining 

exploration. 

It is acknowledged that soil disturbance will occur at small discontinuous locations and in some of the 

LGAs during the life of this document. All areas will meet R10 soil quality standards (SQS). Monitoring 

is designed to identify areas where negative impacts may occur and gives managers the ability to apply 

Adaptive Management at that site to meet resource needs and issues.

Quickly addressing resource issues will minimize the risk of recording a measurable effect to soil 

resources.

Adaptive Management 

Reducing user days on a damaged site, generally will not remediate a site. Instead, use should be 

eliminated or the site should be hardened. As recreation sites are discovered or planned, follow BMPs 

16.1 (Recreation Facilities Planning and Location), 12.10 (Control of Activities under Special Use 

Permit), and 12.5 (Wetland Identification, Evaluation, and Protection). Moving campsites to upland sites 

may alleviate some impacts.

Wetlands 

Introduction

The Environmental Protection Agency (EPA) and the Army Corps of Engineers (COE) jointly define 

wetlands as: “those areas that are inundated or saturated by surface or groundwater with a frequency and 

duration sufficient to support, and that under normal circumstances do support, a prevalence of vegetation 

typically adapted for life in saturated soil conditions. Wetlands generally include swamps, marshes, bogs, 

and similar areas.”

Wetlands are valued for their physical, chemical and biological functions. Physical functions include 

flood conveyance, surface and ground water regulation, sediment retention and temperature moderation. 

Chemical functions include nutrient storage, pH moderation and carbon storage. Biological function 

include habitat for terrestrial, aquatic and marine plants and animals. 

Affected Environment

Sensitive wetland types, or wetlands most vulnerable to trampling are the non-forested wetlands—the 

estuarine, palustrine moss-lichen palustrine emergent wetlands.

A discussion of wetland types in the project area can be found in the soils and wetlands resource report. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 241 - 
Chapter 3—Environmental Consequences

Environmental Consequences

Direct and Indirect Effects 

There is no difference between the No Action (Alternative 1) and any of the action alternatives 

(Alternatives 2 through 4). The action alternatives create new LGAs: Port Althorp, Head of Bay; Port 

Althorp, Salt Chuck Bay; Middle Arm, Kelp Bay; Sahsin Lake Trail; Shoals Point; and Ushk Bay. All 

alternatives are expected to have a slight level of effect to the wetland resource. Trampling and 

disturbance from foot traffic will occur in discreet areas throughout the project area in all alternatives but 

will be minor.

Adverse effects on wetlands are not anticipated from proposed activities. Filling or draining of wetlands is

not proposed in any alternatives. Direct disturbance to wetland from activities is expected to 

predominantly result from foot traffic, viewing areas, and picnic areas.

The total wetland area impacted under any alternative is anticipated to be slight for the project area as a 

whole. Disturbance may be low to high at any given site or LGA, depending on the number of individuals 

visiting the site and frequency of site visits. The impacts will occur primarily in the more open wetlands 

(palustrine emergent and estuarine), since these areas are attractive to visitors and most easily traveled 

through. 

Disturbance impacts on wetlands may be short-term if visitors are few and infrequent. On the other hand 

impacts may be long-term if visitors are many and frequent—like at Fox Creek and Williams Cove.

Most of the impacts will occur where many people visit often, i.e. the LGAs. The most sensitive areas are 

the non-forested wetlands and steeply sloped wetlands. All LGAs have some amount of non-forested 

wetlands. Fowler Creek, Mallard Cove, Sashin Lake Trail, and West Gilbert Bay have more than 50

percent of the LGA as non-forested wetlands. These areas are especially subject to trampling, rutting, and 

ponding from foot traffic. 

User-created trails in these LGAs would be the most prone to becoming wide and intercepting 

groundwater. 

Port Althorp, Head of Bay and Port Althorp, Salt Chuck Bay are proposed, unhardened LGAs. The other 

proposed LGAs, Middle Arm, Kelp Bay, Sahsin Lake Trail, Shoals Point, and Ushk Bay Head are all 

hardened LGAs. 

Existing, hardened LGAs are: Corner Bay Road, Eight Fathom Dock, False Island Camp, George Island, 

Hanus Bay, Kennel Creek, Salt Lake Bay Dock, and Sitkoh Bay Road. 

Cumulative Effects

The cumulative effects Analysis Area is the entire project area. This area encompasses all effects of 

individual actions and potential activities.

Alternative 1 would have the same effects cumulatively as alternatives that are increasing the overall use 

days, from what has been implemented from the Shoreline 2004 O/G EIS. All the alternatives would

cause slight effects to wetland resources.

Past and current recreational activity and land management practices, including past timber harvest, have

contributed to the existing condition in the Analysis Area. The continuation of guided recreational use 

under these alternatives would not add cumulatively to those impacts. Because effects would be so slight, 

they would not add cumulatively to effects from timber sales, hydropower development or mining 

exploration. 

Chapter 3 - 242 - Shoreline II Outfitter/Guide DEIS
Environmental Consequences—Chapter 3

It is acknowledged that wetland disturbance will occur at small discontinuous locations and in some of the 

LGAs during the life of this document, but not beyond R10 SQS. Monitoring is designed to identify areas 

where negative impacts may occur and gives managers the ability to apply Adaptive Management at that 

site to meet resource needs and issues. Quickly addressing resource issues will minimize the risk of 

recording a measurable effect to wetland resources.

Adaptive Management 

Reducing user days on a damaged site, generally will not remediate a site. Instead, use should be 

eliminated or the site should be hardened. As recreation sites are discovered or planned, follow BMPs 

16.1 (Recreation Facilities Planning and Location), 12.10 (Control of Activities under Special Use 

Permit), and 12.5 (Wetland Identification, Evaluation and Protection). Moving campsites to upland sites 

may alleviate some impacts. 

Other Required Disclosures

NEPA at 40 CFR 1502.25(a) directs “to the fullest extent possible, agencies shall prepare draft 

environmental impact statements concurrently with and integrated with...other environmental review 

laws and executive orders.”

Endangered Species Act

All alternatives for the Shoreline II O/G EIS may affect but are not likely to adversely affect the 

humpback whale and western DPS of the Steller sea lion. Disturbance from boat traffic could cause minor 

behavioral changes in a small number of individuals of these populations. 

All alternatives for the Shoreline II O/G EIS will have no effect on Steller sea lion critical habitat. No 

project activities will occur in or adjacent to critical habitat.

National Historic Preservation Act

In consultation with the Alaska State Historic Preservation Officer (AK SHPO) following standard 36 

CFR 800 procedures, the District Archeologist has determined, and the SHPO has concurred, that the 

activities proposed in all four alternatives for this DEIS will have “no adverse effect to historic 

properties” provided the stipulated conditions, which are described in Chapter 3, and Appendices A, B 

and C of this document, are implemented. Any change in proposed guided activities that are not currently 

listed in the permits or that have the potential to disturb the ground will require a case-by-case Section 

106 review by the District Archaeologist.

Alaska National Interest Lands Conservation Act

(ANILCA)

An ANILCA Section 810 and 811 subsistence evaluation was conducted. As noted in the subsistence 

section above, the primary subsistence resource likely to be significantly affected by Forest Plan actions is 

Sitka black-tailed deer. Competition between guided hunters and subsistence users would be the same 

under all alternatives. At current levels of guided deer hunting and allocations, and with the proposed 

mitigation in place around Angoon, competition between guided hunters and subsistence users is not 

expected to be significant. All alternatives shall not result in a significant restriction of subsistence uses. 

Shoreline II Outfitter/Guide DEIS Chapter 3 - 243 - 
Chapter 3—Environmental Consequences

Magnuson-Stevens Fishery Conservation and 

Management Act of 1996

The Magnuson-Stevens Fishery Conservation and Management Act of 1996 (hereafter referred to in this 

section as “the Act”) require consultation with the National Marine Fisheries Service on activities that 

may affect essential fish habitat (EFH). EFH is defined as "those waters and substrates necessary to fish 

for spawning, breeding, feeding, or growth to maturity." EFH for Pacific salmon includes marine waters, 

intertidal habitats, and freshwater streams accessible to anadromous fish. Marine EFH for the salmon 

fisheries in Alaska includes all estuarine and marine areas used by Pacific salmon of Alaska origin, 

extending from the influence of tidewater and tidally submerged habitats to the limits of the U.S. 

exclusive economic zone. The Act promotes the protection of these habitats through review, assessment, 

and mitigation of activities that may adversely affect these habitats. 

This DEIS satisfies the consultation requirements by providing a description and assessment of EFH in

the project areas, a description of each alternative and its potential impacts on these habitats, and a 

description of the mitigation measures that would be implemented to protect these habitats. The formal

consultation will start when NMFS receives a copy of the EIS with the EFH Assessment.

NMFS may then respond in writing as to whether it concurs with the findings of the assessment or make

conservation recommendations. The USDA Forest Service must respond to any recommendations made 

by NMFS within 30 days. 

Executive Order 13175 (2000) and 13084 (1998): 

Consultation and Coordination with Indian Tribal 

Governments 

Executive Orders 13175 and 13084 direct federal agencies to work with tribal governments in policy 

development and project implementation where significant tribal interests are affected by federal policies 

or undertakings. Throughout the planning process the District Archaeologists have been in contact with 

affected Tribal governments (Chapter 1, Public Involvement), and their concerns and comments have 

been incorporated into this analysis.

Executive Order 13007

Alaska Natives will continue to have access to their traditional religious and spiritual sites protected under 

the American Indian Religious Freedom Act (AIRFA) and Forest Service standards and guidelines for the 

treatment of sacred sites (USDA Forest Service 2008a pp. 4-19) and be in compliance with the protection 

of sacred sites pursuant to Executive Order 13007. 

Chapter 3 - 244 - Shoreline II Outfitter/Guide DEIS
Chapter 4

References and Lists

Chapter 4. References and Lists

List of Preparers ________________________ 

Barbara Adams Position: Fisheries Biologist 

Experience: Forest Service—9 years; USGS—5 years

Education: M.S., Zoology with fisheries emphasis; B.S. Biology

Jim Baichtal Position: Forest Geologist

Experience: Forest Service—31 years; U.S. Army COE, 2 years 

Education: Honorary Ph.D.; M.S., Geology; B.S., Geology 

Marty Becker Position: Watershed Program Coordinator

Experience: Forest Service—20 years; Bureau of Land Management—1 year

Education: B.S., Watershed Management/Soils

Jennifer Berger Position: Special Uses, Wilderness and Heritage Staff

Experience: Forest Service—21 years; Bureau of Land Management—1 

year; National Park Service—1 year; State of Utah—1 year

Education: B.S., Forestry with Recreation emphasis

Gabi Bosch Position: GIS Database Administrator 

Experience: Forest Service—32 years 

Education: High School 

Arthur Burbank Position: District Ranger for Hoonah Ranger District

Experience: Forest Service—21 years 

Education: M.S., Metallurgical Engineering; B.S., Zoology, minor in

Microbiology

Carey Case Position: Interdisciplinary Team Leader for Shoreline II project since May 

2015 

Experience: Forest Service—15 years 

Education: B.A., Political Science

Dennis Chester Position: Wildlife Biologist

Experience: Forest Service—26 years; US FWS—5 years

Education: M.S., Wildlife Ecology; B.S., Wildlife Ecology

Geno Cisneros Position: Recreation Technician

Experience: Forest Service—20 years

Education: B.S., Natural Resources

Clay Davis Position: Lands, Minerals, and Special Uses Administrator

Experience: Forest Service—4 years; Retired U.S. Army

Education: M.S., Biology; B.S.S., Political Science and Art
Chapter 4—References and Lists

Mike Dilger Position: Recreation Resources Specialist

Experience: Forest Service—22 years 

Education: B.S., Biological Services

Joe Edmonds Position: Writer-Editor for Shoreline II project since December 2014 

Experience: Forest Service—1 year; BLM/VISTA—1 year;

AmeriCorps—2 years; Cow Creek Band of

Umpqua Tribe of Indians—10 months 

Education: M.S., Environmental Policy; B.A. English

J. Perry Edwards Position: District Ranger for Sitka Ranger District

Experience: Forest Service—22 years 

Education: B.S., Wildlife Management

Jacqueline Foss Position: Soil Scientist

Experience: Forest Service—12 years 

Education: B.S., General Engineering/Social Science

Nicole Grewe Position: Economist 

Experience: Forest Service—1 year; State of Alaska Department of 

Commerce—11 years

Education: Ph.D., Rural Sociology; MCRP, Small Town Planning and 

Economic Development; M.S., Rural Sociology; M.S., 

Sociology

Myra Gilliam Position: Archaeologist 

Experience: Forest Service—20 years 

Education: B.A., Archaeology

Barth Hamberg Position: Landscape Architect

Experience: Forest Service—30 years 

Education: M.S., Landscape Architecture; B.S. Agricultural Economics

Kevin Hood Position: Wilderness Program Manager 

Experience: Forest Service—20 years 

Education: Working on M.S., Environmental 

Studies with/emphasis in Conservation Biology; B.A., English 

Literature

Shane King Position: Natural Resources Specialist

Experience: Forest Service—5 years; retired Marine Corps

Education: B.S., Natural Resources; Graduate studies

Jay Kinsman Position: Interdisciplinary Team Leader for 

Shoreline II project from April 2015 

Experience: Forest Service—13 years; Coast Guard and Department of 

Defense—7 years

Education: B.A., Archaeology

Chapter 4 - 248 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Brad Krieckhaus Position: Botanist, Invasive Species Specialist

Experience: Forest Service—10 years; Forestry Sciences Lab—5 years

Education: B.S., Psychology; 3 years coursework in botany, soils, and

natural resources

Annemarie LaPalme Position: Recreation, Lands, Minerals, and Special Uses Staff

Experience: Forest Service—35 years 

Education: B.S., Forest Management

Chris Leeseberg Position: Wildlife Biologist

Experience: Forest Service—1 year; USGS—1 year; Idaho Fish and 

Game—6 months; Klamath Tribes—5 years

Education: M.S., Biology; B.S., Biology

Jennifer MacDonald Position: Special Uses Permit Administrator/Wilderness Manager

Experience: Forest Service—10 years 

Education: M.S., Recreation Resource and Tourism; B.S., Recreation

Resource Management

Rachael Myron Position: Heritage Archaeologist

Experience: Forest Service—21 years 

Education: MAT—Masters of Teaching; B.A., Archaeology

Brad Orr Position: District Ranger for Juneau Ranger District

Experience: Forest Service—35 years 

Education: B.S., Biology

Wendy Schuyler Position: Writer-Editor for Shoreline II project from July to November 

2014 

Experience: Forest Service—10 years 

Education: B.S., Wildlife Management & Biology

Pete Schneider Position: Fisheries Biologist 

Experience: Forest Service—14 years 

Education: B.S., Zoology

Rick Turner Position: Vegetation Ecologist

Experience: Forest Service—12 years 

Education: M.S., Biology; B.S., Forestry

Chad VanOrmer Position: Lead District Ranger for the Shoreline II project; Monument 

Ranger, Admiralty National Monument 

Experience: Forest Service—14 years 

Education: M.S., Conservation Social Sciences; B.S., Forestry

Shoreline II Outfitter/Guide DEIS Chapter 4 - 249 - 
Chapter 4—References and Lists

List of DEIS Recipients

The following is a list of agencies, organizations, and persons to whom the Shoreline II Outfitter/Guide 

Draft Environmental Impact Statement was sent.

Agencies

Advisory Council on Historic Preservation 

ANILCA Implementation Program

Department Of Energy, Director, NEPA Policy 

& Compliance 

Deputy Director, U.S. Department of 

Agriculture, APHIS PPD/EAD 

Director OEPC Federal Aviation Administration

Regional Director, Alaska Region Federal 

Highway Administration

National Environmental Coordinator, Natural 

Resource Conservation Service, NOAA Office 

of Policy and Strategic Planning 

U.S. Coast Guard, Commandant CG-47, 

Department of Homeland Security 

USDA Forest Service, Tongass National Forest, 

Hoonah Ranger District 

USDA Forest Service, Tongass National Forest, 

Admiralty National Monument 

USDA Forest Service, Tongass National Forest, 

Juneau Ranger District

USDA Forest Service, Tongass National Forest, 

Sitka Ranger District

Libraries

Alaska State Library National Agricultural Library, Acquisitions & 

Serials Branch

Media

 Juneau Empire 

Raven Radio

KFSK

KTOO

Organizations and Businesses

Alaska Coastal Hunting 

Citizens’ Advisory Committee on Federal Areas 

Coastal Wilderness Charters LLC

Crew International Tours 

EverGreen and Capital Cab

Glacier Taxi and Tours 

Glacier Guides, Inc. 

Hauling Bros. Crew Shuttle 

Juneau Tours LLC

LD’s Crew Shuttle 

Mendenhall Glacier Transport 

Riley Bus Service

SAGA

SE Alaska Cruises, Inc. 

Shearwater Lodge & Charters Tribal Tours

Southeast Alaska Guidance Association

Chapter 4 - 250 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Tribes, Tribal Corporations, City Governments, and 

Publicly Elected Officials

Alaska Native Brotherhood, Camp #1 

Alaska Native Sisterhood, Camp #4 

Angoon Community Association 

Central Council Tlingit & Haida Indian Tribes 

of Alaska 

Chilkat Indian Village

Chilkoot Indian Association 

City & Borough of Sitka 

City of Angoon 

City of Elfin Cove 

City of Gustavus 

City of Pelican

City of Port Alexander 

City of Tenakee Springs 

Congressman Don Young 

Douglas Indian Association 

Goldbelt, Inc. 

Hoonah Indian Association 

Huna Totem Corporation 

Kake Tribal Corporation 

Kavilco Inc.

Klukwan Inc. 

Kootznoowoo Inc. 

Organized Village of Kake

Petersburg Indian Association

Sealaska Corporation

Senator Lisa Murkowski 

Senator Mark Begich 

Shee Atika Inc.

Sitka Tribe of Alaska 

Skagway Traditional Council 

Individuals (hardcopy)

John Geddie 

Karen Nemecek 

Jack Ozment 

Molly Kemp 

Debra Gifford 

Peter Neyhart

Connie Oen 

Uriah Strong 

Bruce Baker

Individuals (electronic)

The Tongass National Forest mailed the EIS electronically via GovDelivery to a list of 252 individuals 

who are registered to receive emails The list of individual email addresses is available in the Shoreline II 

Outfitter/Guide project record.

Shoreline II Outfitter/Guide DEIS Chapter 4 - 251 - 
Chapter 4—References and Lists

References

The following list of references includes both literature cited in this DEIS and other sources of 

information used in the Shoreline II Outfitter/Guide analysis. Complete reference lists are included in 

individual resource reports which are on file in the Shoreline II Outfitter/Guide project record.

Abouguendia, Z. 2001. Livestock grazing and riparian areas: a literature review. Regina: Grazing and 

pasture technology program.

Agler, B.A., S.J. Kendall, and D.B. Irons. 1998. Abundance and Distribution of Marbled and Kittlitz's 

Murrelets in Southcentral and Southeast Alaska. The Condor 100: 254-265. 

Agness, A.M., J.F. Piatt, J.C. Ha, and G.R. VanBlaricom.2008. Effects of vessel activity on the near-shore 

ecology of Kittlitz’s murrelets (Brachyramphus brevirostris) in Glacier Bay, Alaska. The Auk 

123. 2: 346-353.

Alaback, P.B. 1982. Dynamics of understory biomass in Sitka spruce-western hemlock forests of 

Southeast Alaska. Ecology 63: 1932-1948. 

Alaska Board of Game. 2000. Southeast Alaska unit 4 brown bear management strategy--

recommendations of a citizens and agency brown bear management advisory team. Douglas: 

Alaska Department of Fish and Game. 

Alaska Department of Fish and Game. 2015. Community Subsistence Information System. 6 Oct. 2015: 

http://www.adfg.alaska.gov/sb/CSIS/. 

Alaska Department of Labor and Workforce Development. 2015. Alaska Economic Trends. Juneau: 

Alaska Department of Labor and Workforce Development. 31 Dec. 2015: 

https://www.commerce.alaska.gov/dcra/DCRAExternal/. 

Alaska Natural Heritage Program (ANHP). 2015. Rare vascular plant list. 19 Aug. 2015: 

http://aknhp.uaa.alaska.edu/botany/rare-plants-species-lists/rare-vascular-hulten/#content. 

Alaska Shorebird Group. 2008. Alaska Shorebird Conservation Plan. Version II. Anchorage: Alaska 

Shorebird Group. 

Allen, B.M. and R.P. Angliss. 2014. Alaska marine mammal stock assessments, 2013. Technical 

Memorandum NMFS-AFSC-277. U.S. Department of Commerce, NOAA, NMFS, Alaska 

Fisheries Science Center. 

Anderson, D.W., and J.O. Keith. 1980. The human influence on seabird nesting success: conservation 

implications. Biological Conservation 18: 65-80. 

Andres, B.A. and G.A. Falxa. 1995. Black Oystercatcher (Haematopus bachmani), The Birds of North 

America Online A. Poole, editors. Ithaca: Cornell Lab of Ornithology. 11 Oct. 2015: 

http://bna.birds.cornell.edu/bna/species/155

Apfelbaum and Sams. 1987. Ecology and control of reed canary grass. Natural Areas J., 7: 69-74. 

Armstrong, R.H. 1995. Guide to the birds of Alaska, 4th edition. Portland: Alaska Northwest Books. 

Chapter 4 - 252 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Arndt, K., R. H. Sackett and J. E Ketz. 1987. A Cultural Overview of the Tongass National Forest. Part 1: 

Overview. Contract number 53-109-6-00203. Juneau: USDA FS, Region 10, Tongass National 

Forest. 

Au, W.W. L. and M. Green. 2000. Acoustic interaction of humpback whales and whale-watching boats. 

Marine Environment Research 49: 469-481. 

Bartholomew, Aaron and James Bohnsack. 2005. A review of catch-and-release angling mortality with 

implications for no-take reserves. Fish Biology and Fisheries 15: 129-154. 

Bedunah, D., and Carpenter, J. 1989. Plant community response following spotted knapweed (Centaurea 

maculosa) control on three elk winter ranges in western Montana Plant &Soil Department and 

Extension Service/ Montana State University. Bozeman: Knapweed Symposium. 

Beechie, T. J. and T. H. Sibley. 1996. Relationships between channel characteristics, woody debris, and 

fish habitat in Northwestern Washington streams. Transactions of the American Fisheries Society 

126: 217-229. 

Behnke, R. J. 2002. Trout and salmon of North America, 1st edition. New York: The Free Press. 

Behnke, R. J. 1992. Native trout of western North America, volume Monograph 6. Bethesda: American 

Fisheries Society. 

Bell, Connor. 2015. Tourism in Southeast. Trends. Juneau: Alaska Department of Labor and Workforce 

Development, Research and Analysis Section.

Bendock, T. and M. Alexandersdottir. 1993. Hooking mortality of Chinook salmon released in the Kenai 

River, Alaska. North American Journal of Fisheries Management 13: 540-549. 

Binns, N. A., and F. M. Eiserman. 1979. Quantification of fluvial trout habitat in Wyoming. Transactions 

of the American Fisheries Society. 108. 3: 215-228. 

Bisson, P. A., K. Sullivan and J. L. Nielsen. 1988. Channel hydraulics, habitat use, and body form of 

juvenile coho salmon, steelhead and cutthroat trout in streams. Transactions of the American 

Fisheries Society 117: 262-273. 

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Chapter 4 - 268 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Glossary ______________________________ 

Term Definition

Adaptive Management Adaptive Management is a planning process that 

provides a structure to evaluate how to best meet a 

project’s short-term and long-term goals. 

Alaska National Interest Lands Conservation 

Act (ANILCA)

The Alaska National Interest Lands Conservation Act of

December 2, 1980, Public Law 96-487, 96th

Congress, 94 Stat. 2371-2551. Passed by Congress in

1980, this legislation designated 14 national forest

wilderness areas in Southeast Alaska. Section 810 

requires evaluations of subsistence impacts before 

changing the use of these lands.

Best management practices (BMP)

These are common-sense actions required by law to

keep soil and other pollutants out of streams and lakes.

BMPs are designed to protect water quality and to

prevent new non-point source pollution.

Big game guide An outfitter/guide authorized to conduct hunting activities 

for big game wildlife species, as defined by ADF&G 

hunting regulations. 

Biological assessment

A type of biological evaluation conducted for major federal

actions requiring an environmental impact statement, in

accordance with legal requirements under Section 7 of

the Endangered Species Act (16 U.S.C.1536(c)). The 

purpose of the assessment and resulting document is to

determine whether the proposed action is likely to affect a 

species that has been listed or proposed as an

endangered or threatened species.

Biological evaluation

A documented Forest Service review of Forest Service

programs or activities in sufficient detail to determine how

an action or proposed action may affect any species that

has been listed or proposed as threatened, endangered, or 

sensitive.

Biological opinion

An official report by the U.S. Fish and Wildlife Service

(USFWS) or the National Marine Fisheries Service

(NMFS) issued in response to a formal Forest Service

request for consultation or conference. It states whether

an action is likely to result in jeopardy to a species or

adverse modification of its critical habitat.

Commercial use or activity

Any use or activity on National Forest System lands: 1. 

Where an entry or participation fee is charged, or 2. 

Where the primary purpose is the sale of a good or 

service and, in either case, regardless of whether the use 

or activity is intended to produce a profit (36 CFR

251.51).

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Term Definition

Cumulative effects

The impacts on the environment resulting from the

addition of the incremental impacts of past, present, and

reasonably foreseeable future actions regardless of what

agency (federal or non-federal) or person undertakes

such actions. Cumulative impacts can result from

individually minor but collectively significant actions

occurring over time. 

Desired future condition A statement of the ultimate goal for resources and uses of

an area.

Developed recreation

Recreation that requires facilities that, in turn, result in

concentrated use of an area, such as campgrounds and

picnic areas. Facilities in these areas might include roads,

parking lots, picnic tables, toilets, drinking water, and

buildings (See Dispersed Recreation). 

Direct effects Environmental effects that occur at the same time and

place as the initial cause or action.

Dispersed recreation

Recreation activities that are not confined to a specific

place and are generally outside developed recreation

sites. This includes activities such as scenic driving,

hiking, backpacking, hunting, fishing, snowmobiling, crosscountry skiing, and recreation in primitive environments

(See Developed Recreation).

Displacement (recreation)

More of a long-term effect than dispersal, resulting in a 

decision by visitors to avoid an area based on previous 

experiences such as regulation or crowding. 

Displacement could mean relocating to another area that 

is capable of providing the desired recreation experience.

Endangered species

Any species of animal or plant that is in danger of 

extinction throughout all or a significant portion of its 

range. Plant or animal species are identified by the 

Secretary of the Interior as endangered in accordance 

with the 1973 Endangered Species Act.

Environmental impact statement (EIS)

A statement of environmental effects of a proposed action

and alternatives to it. A Draft EIS is released to the public

and other agencies for review and comment. A Final EIS 

is issued after consideration of public comments. A 

Record of Decision (ROD) is based on the information

and analysis in the Final EIS. 

Fall season September 15 – December 31.

Forbs A category of herbaceous plants that are not included in 

the grass, shrub, or tree categories; generally smaller 

flowering plants.

Chapter 4 - 270 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Term Definition

Forest plan 

The Tongass Land and Resource Management Plan is 

the source of management direction for the Tongass 

National Forest. It specifies activity and output levels for 

a 10–15 year period.

Forest-wide standards and guidelines

A set of rules and guidance that directs management 

activities and establishes the environmental quality, 

natural renewable and depletable resource requirements, 

conservation potential, and mitigation measures that 

apply to several land use designations. 

Game management unit (GMU) One of the 26 geographical areas listed under Game 

Management Units in the codified hunting and trapping 

regulations and the Game Unit Maps of Alaska

Geographic information system (GIS) A computerized map database that is used to store and 

evaluate site- specific information.

Guide use area (GUA)

Guide Use Areas are subunits of Game Management 

Units, which are delineated by ADF&G for the purpose of 

managing and sustaining populations of game species in 

the State of Alaska. See Use Area below. 

Habitat The sum total of environmental conditions of a specific 

place that is occupied by an organism, population, or 

community of plants or animals.

Heritage resources

The prehistoric or historical district, site, building, 

structure, or object including artifacts, records, and 

remains that are related to and located within such 

properties in, or eligible for inclusion in, the National 

Register of Historic Places. 

Indirect effects

Effects that occur later in time or are spatially removed 

from the activity but would be significant in the 

foreseeable future.

Interdisciplinary team

(IDT)

A group of individuals with different scientific and 

resource expertise. The team is assembled out of 

recognition that no one scientific discipline is sufficiently 

broad to adequately address natural resource 

management.

Through interaction, participants bring different points of 

view and a broader range of expertise.

Irretrievable commitments Loss of production or use of renewable natural resources 

for a period of time. The production or use lost is 

irretrievable, but not irreversible.

Irreversible commitments Decisions causing changes that cannot be reversed. 

Often applies to nonrenewable resources such as 

minerals and cultural resources.

Land use designation 

(LUD)

A defined area of land, identified by the Forest Plan, to 

which specific management direction is applied.

Shoreline II Outfitter/Guide DEIS Chapter 4 - 271 - 
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Term Definition

Large group

Group made up of a number of people that exceeds the 

general maximum group size for a specified type of 

recreation experience in the ROS. Large group size 

varies by LUD and ROS. In this EIS, large groups are 

defined as 21–75 people.

Large group area For this EIS, specific areas where groups of 21–75 

people may be allowed. 

Management indicator species (MIS)

Vertebrate or invertebrate wildlife species whose 

response to land management activities can be used to 

predict the likely response of other species with similar 

habitat requirements. The National Forest Management 

Act regulations prescribe the use of management 

indicator species.

Mitigation

Measures designed to counteract or reduce

environmental impacts. These measures may include:

avoiding an impact by not taking a certain action or part of

an action; minimizing an impact by limiting the degree or

magnitude of an action and its implementation; rectifying

the impact by repairing, rehabilitating, or restoring the

affected environment;reducing or eliminating the impact

over time by preservation and maintenance operations

during the life of the action; or compensating for the

impact by replacing or providing substitute resources or

environments.

Monitoring

A process of collecting information to evaluate whether or

not objectives of a project and its mitigation plan are being

realized. Monitoring can occur at different levels: to

confirm whether mitigation measures were carried out in

the matter called for (Implementation Monitoring); to

confirm whether mitigation measures were effective

(Effectiveness Monitoring); or, to validate whether overall

goals and objectives were appropriate (Validation

Monitoring).

Multiple use

The management of all the various renewable surface

resources of the National Forest System so that they are 

used in the combination that will best meet the needs of

the American people; harmonious and coordinated

management of the various resources, each with the

other, without impairment of the productivity of the land,

with consideration being given to the relative values of 

the various resources.

National Environmental Policy Act of 1969 

(NEPA)

An act declaring a national policy to encourage 

productive harmony between humans and their 

environment, to promote efforts that will prevent or 

eliminate damage to the environment and the biosphere 

and stimulate the health and welfare of humans; to enrich 

the understanding of the ecological systems and natural 

resources important to the nation and to a Council on 

Environmental Quality.

Chapter 4 - 272 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Term Definition

National Forest Management Act (NFMA)

A law passed in 1976 that amends the Forest and 

Rangeland Renewable Resources Planning Act, requires 

the preparation of Forest plans, requires the identification 

of management indicator species, and defines 

parameters for timber suitability.

National Register of Historic Places A register of cultural resources of national, state, or local 

significance, maintained by the Department of the 

Interior.

Non-commercial use

In this analysis, refers to unguided or unoutfitted use; use 

for which no special uses permit is necessary and for 

which no one receives financial remuneration or other 

gain for services provided on the national forest.

Old-growth forest

Ecosystems distinguished by old trees and related 

structural attributes. Old growth encompasses the later 

stages of stand development that typically differ from 

earlier stages in a variety of characteristics that may 

include larger tree size, higher accumulations of large 

dead woody material, multiple canopy layers, different 

species composition, and different ecosystem function.

The structure and function of an old-growth ecosystem 

will be influenced by its stand size and landscape 

position and context.

Old-growth habitat A contiguous unit of old-growth forest habitat to be 

managed to maintain the integrity of the old-growth forest 

ecosystem. 

Outfitter/guide

Those who, generally for compensation, facilitate the 

use, enjoyment, understanding, and appreciation of 

national forest recreation settings where the need for 

service has been identified and is compatible with 

objectives and management direction. Specifically 

defined as:

Guiding. Providing services or assistance (such as 

supervision, protection, education, training, packing, 

touring, subsistence, transporting people, or 

interpretation) for pecuniary remuneration or other gain to 

individuals or groups on National Forest System 

lands. The term "guide" includes the holder's employees 

and agents.

Outfitting. Renting on or delivering to National Forest 

System lands for pecuniary remuneration or other gain 

any saddle or pack animal, vehicle, boat, camping gear, 

or similar supplies or equipment. The term "outfitter" 

includes the holder's employees and agents.

Shoreline II Outfitter/Guide DEIS Chapter 4 - 273 - 
Chapter 4—References and Lists

Term Definition

Outfitting/guiding

Outfitting and guiding include but are not limited to 

packing, hunts, education, float trips, canoe...liveries, 

shuttle services, ski touring,...boat tours, and fishing trips 

and may be conducted by, among others, educational, 

rehabilitation, and interpretive ventures and outdoor 

institutional organizations, including both for-profit and 

non-profit entities. (see Tours, Package Trips, and 

Transporter)

Package trip

Package Trips include:

a. Outfitted trips, which provide supplies, equipment,

boats, vehicles, and so forth, either loaned or rented,

onto National Forest System lands, improvements or

resources.

b. Guided trips that provide customer care, food, shelter,

tutorage, interpretation, care of fish and game meat and

trophies, or other services besides or in addition to

strictly point-to-point transportation commonly included in

guiding, on National Forest System lands, improvements

or resources.

c. Non-guided, non-outfitted trips onto National Forest

System lands, improvements or resources with fees in

excess of competitive point-to-point transportation rates.

The principle purpose of a package trip is to provide or 

facilitate an outdoor recreation experience on National 

Forest System lands, improvements or resources. 

Package Trips are typically, but not necessarily, 

marketed by using words such as: "fishing," "hunting," 

"camping," "photography," "rafting," "kayaking," 

"mountain climbing," "nature education," or other type of 

outdoor recreation activity.

Primary use season 

The primary use season refers to the summer season

during which visitation to the forest is generally the 

highest.

Priority travel routes

Land adjacent to the Alaska Marine Highway, cruise ship 

routes, flightseeing routes, high use recreation areas, 

and other marine and land-based travel routes, that are 

seen by more people, more frequently and for a greater 

duration of time than other areas of the national forest.

Priority special use permit

Permit of use for up to 10-years, based on the holder's 

past use and performance and applicable programmatic 

or project decisions to allocate use. Except as provided 

in 36 CFR Part 251, Subpart E, authorizations providing 

for priority use are subject to renewal (sec. 53.1m).

Productive old growth Old-growth stands of 8,000 or more board feet of timber 

per acre, capable of producing at least 20 cubic feet per 

acre per year.

Proposed action An initial proposal by a federal agency to authorize, 

recommends, or implements an action.

Chapter 4 - 274 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Term Definition

Recreation opportunity spectrum

(ROS)

A system for planning and managing resources that 

categorizes recreation opportunities into seven classes. 

Each class defines the degree to which certain recreation 

experience needs are met. Classes are based on the 

extent to which the natural environment has been 

modified, the type of facilities provided, the degree of 

outdoor skills needed to enjoy the area, and the relative 

density of recreation use.

Recreation places

Identified geographical areas having one or more 

physical characteristics particularly attractive to 

recreationists. They may be beaches, streamsides or 

roadside areas, trail corridors, hunting areas near 

lakeshores.

Recreation site

A specific site and/or facility occurring within a recreation 

place. Some examples of recreation sites are: recreation 

cabins, trailheads, picnic areas, and wildlife viewing 

blinds.

Riparian management area

The area including water, land, and plants adjacent to 

perennial streams, lakes, and other bodies of water that 

is managed for the inherent qualities of the riparian 

ecosystem.

Roadless area

An area of undeveloped public land identified in the 

roadless area inventory of the Forest Plan within which 

there are no improved roads maintained for travel by 

means of motorized vehicles intended for highway use.

Scoping process

Early and open communication with the public used to 

determine the scope and significance of a proposed 

action, what level of analysis is required, what 

information is needed, and what level of public 

participation is appropriate.

Scoping focuses on the issues surrounding the proposed 

action and the range of actions, alternatives, and impacts 

to be considered in an EA or EIS.

Sensitive species

Animal and plant species identified by the Forest Service 

Regional Forester as potentially susceptible or vulnerable 

to activity impacts or habitat alterations and, therefore, in 

need of special considerations during land management 

activity planning.

Service day 

An allocation of use constituting a day or any part of a 

day on National Forest System lands for which an 

outfitter or guide provides services to a client. The total 

number of service days is calculated by multiplying each 

service day by the number of clients on the trip.

Shoreline II Outfitter/Guide DEIS Chapter 4 - 275 - 
Chapter 4—References and Lists

Term Definition

Significant issue

Under NEPA, refers to issues that are used to formulate 

alternatives, prescribe mitigation measures, or analyze 

environmental effects. Issues are ‘significant’ because of 

the extent of their geographic distributions, the duration 

of their effects, or the intensity of interest or resource 

conflict. ‘Significantly’ requires considerations of both 

context and intensity, as developed in the CEQ

regulations, sec. 1508.27.

Special interest area A designation for an area possessing unique or unusual 

scenic, historical, prehistoric, scientific, or other 

characteristics.

Spring season 

March 15 – April 24 (Early Spring), April 25—May 31st

(Late Spring). Some use areas’ late spring seasons end 

on May 20th. 

Stand

A group of trees occupying a specific area and 

sufficiently uniform in composition, age arrangement, and 

condition as to be distinguishable from the forest in 

adjoining areas.

Stream class

A way to categorize stream channels based on their fish 

production values. Also known as Aquatic Habitat 

Management Unit (AHMU) Class. There are four stream 

classes defined by the Forest Plan. 

They are:

Class I Streams and lakes with anadromous or adfluvial 

fish habitat; or high quality resident fish waters listed in 

Appendix 68.1, Region 10 Aquatic Habitat Management 

Handbook (FSH 2609.24), June 1986; or habitat above 

fish migration barriers known to be reasonable 

enhancement opportunities for anadromous fish.

Class II Streams and lakes with resident fish populations 

and generally steep (6–15 percent) gradient (can also 

include streams from 0–5 percent gradient) where no 

anadromous fish occur, and otherwise not meeting Class 

I criteria. The fish populations have limited fisheries 

values and generally occur upstream of migration 

barriers, or the streams have other habitat features that 

preclude anadromous fish use.

Class III Perennial and intermittent streams with no fish 

populations but which have sufficient flow or transport 

sediment and debris to have an immediate influence on 

downstream water quality or fish habitat capability. These 

streams generally have bankfull widths greater than five 

feet and are highly incised into the surrounding hillslope.

Class IV Intermittent, ephemeral, and small perennial 

channels with insufficient flow or sediment transport 

capabilities to have an immediate influence on 

downstream water quality or fish habitat capability. These 

streams generally are shallowly incised into the 

surrounding hillslope.

Chapter 4 - 276 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Term Definition

Subspecies

An aggregate of similar populations of a species 

generally inhabiting a geographic subdivision of the 

range of the species and differing taxonomically (for 

example, different size or color) from other populations of 

the species.

Summer season June 1 (May 21 for some use areas)—Sept. 14 

Threatened species

A plant or animal species likely to become an 

endangered species within the foreseeable future 

throughout all or a significant portion of its range. 

Threatened species are identified and defined in 

accordance with the 1973 Endangered Species Act and 

published in the Federal Register.

Tour

Tours include boat sight-seeing trips and flight-seeing 

trips that use National Forest System lands, 

improvements or resources. A tour is round-trip 

transportation regardless of the number of stops or 

landings--that is, a trip having the same general starting 

and ending point--the principal purpose of which is to 

view National Forest System lands or resources. 

Throughout the duration of a sight-seeing, flight-seeing, 

or other tour, including the time that the operator's 

client(s) is (are) present upon National Forest System 

lands, improvements or resources, the tour operator or a 

representative thereof remains within proximity of the 

client(s), or, if leaving the proximity of the client(s), 

returns thereto within a one-hour period. 

Other attributes of a tour typically include the offering of 

interpretative services by the tour operator or 

representative thereof. Fees for tours are usually 

charged per passenger, rather than per hour of operation 

or by distance traveled, and are set based upon the 

presence of a minimum number of passengers per trip. 

In addition, tours are generally marketed by using the 

words "tour," "sight-seeing," "flight-seeing" or similar 

words. However, none of these particular attributes need 

be present in order for round trip transportation to be 

deemed a tour.

Transporter or point-to-point services

Point- to- point charter transportation services at 

competitive fee rates to National Forest System lands, 

improvements or resources, that is, trips that are not a 

tour or package trip. These services do not require a 

permit. However, in areas where activities are causing 

conflicts with National Forest System land-based 

recreational users, operators must cooperate with the 

District Ranger in reducing user conflicts. (see Tours, 

Package Trips)

Shoreline II Outfitter/Guide DEIS Chapter 4 - 277 - 
Chapter 4—References and Lists

Term Definition

Use area

Distinct geographic area used in this analysis as the 

basis for defining and managing recreation use. Use 

Areas are subdivisions of Guide Use Areas used by the 

Alaska Department of Fish and Game to manage 

commercial big game guiding. Use Areas provide distinct 

geographical areas at a size that allows meaningful 

recreation management for specific areas of the national 

forest.

Value comparison unit (VCU)

A distinct geographic area that generally encompasses a 

drainage basin containing one or more large stream 

systems. Boundaries usually follow easily recognizable 

watershed divides.

These units were established in the Forest Plan to 

provide a common set of areas for which resource 

inventories could be conducted and resource value 

interpretations made.

Viewshed

A distinct area of land visible from identified travelways 

(boat route, recreation road, or trail) or recreation places

(recreation cabin or anchorage).

Watershed

That area that contributes water to a drainage or stream; 

portion of a forest in which all surface water drains to a 

common point. Can range from a few tens of acres that 

drain a single small intermittent stream to many 

thousands of acres for a stream that drains hundreds of 

connected intermittent and perennial streams.

Wetlands

Areas that are inundated by surface or ground water with 

a frequency sufficient, under normal circumstances, to 

support a prevalence of vegetative or aquatic life that 

requires saturated or seasonally saturated soil conditions 

for growth and reproduction. Wetlands generally include 

muskegs, marshes, bogs, sloughs, potholes, river 

overflows, mud flats, wet meadows, seeps, and springs.

Wilderness

Area designated under the 1964 Wilderness Act. 

Wilderness is defined as undeveloped federal land 

retaining its primeval character and influence without 

permanent improvements or human habitation. 

Wilderness areas are protected and managed to 

preserve their natural conditions. In Alaska, the Tongass 

Timber Reform Act of 1990 and ANILCA also have 

designated wilderness areas.

Wildlife analysis area (WAA) A division of land used by the Alaska Department of Fish 

and Game for wildlife analysis.

Winter range An area, usually at lower elevations, used by big game 

during the winter months; usually smaller and better 

defined than summer ranges.

Winter season January 1—March 14

Chapter 4 - 278 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

Index 

adaptive management, v, ix, x, xi, - 8 -, - 35 -, 

- 38 -, - 41 -, - 190 -

Alaska Board of Game (ABOG), iv, - 7 -, - 9 -, 

- 169 -, - 170 -

Alaska Department of Environmental 

Conservation (ADEC), - 68 -, - 221 -, - 225 - 

Alaska Department of Fish & Game 

(ADF&G), iv, ix, - 7 -, - 9 -, - 12 -, - 32 -, - 

33 -, - 34 -, - 84 -, - 114 -, - 135 -, - 136 -, - 

164 -, - 165 -, - 167 -, - 168 -, - 169 -, - 170 -, 

- 171 -, - 172 -, - 173 -, - 192 -, - 194 -, - 201 -

, - 203 -, - 205 -, - 220 -, - 227 -, - 228 -, - 229

-, - 234 -

Alaska National Interest Lands Conservation 

Act (ANILCA), - 6 -, - 18 -, - 19 -, - 73 -, - 

80 -, - 83 -, - 91 -, - 99 -, - 140 -, - 202 -, - 203 

-, - 234 -, - 243 - 

best management practice (BMP), x, - 43 -, - 

60 -, - 174 -, - 221 -, - 222 -, - 223 -, - 224 -, - 

225 -, - 229 -, - 231 -, - 232 -, - 233 -, - 236 -, 

- 237 -, - 238 -, - 241 -, - 243 -

big game guide, - 33 -, - 34 -, - 136 -, - 137 -, - 

142 - 

biological evaluation (BE), - 13 -, - 179 - 

Code of Federal Regulations (CFRs), x, - 1 -, - 

9 -, - 10 -, - 12 -, - 19 -, - 21 -, - 34 -, - 40 -, - 

43 - - 60 -, - 148 -, - 149 -, - 174 -, - 183 -, - 

243 - 

commercial use, vi, viii, - 15 -, - 16 -, - 25 -, - 

36 -, - 70 -, - 71 -, - 72 - 

Council on Environmental Quality (CEQ), - 1 

-, - 10 -, - 14 -, - 59 - 

desired future condition, - 6 -, - 9 -, - 10 -, - 22 

-, - 102 -, - 223 - 

effects

cumulative, - 59 -, - 61 -, - 72 -, - 76 -, - 90 -, 

- 99 -, - 101 -, - 119 -, - 139 -, - 142 -, - 143

-, - 162 -, - 163 -, - 164 -, - 179 -, - 188 -, -

200 -, - 201 -, - 202 -, - 206 -, - 207 -, - 208

-, - 209 -, - 213 -, - 214 -, - 215 -, - 219 -, -

224 -, - 230 -,- 231 -, - 232 -, - 237 -, - 241

-, - 242 -

direct, - 90 -, - 94 -, - 98 -, - 99 -, - 157 -, - 

164 -, - 189 -, - 196 -, - 208 -, - 211 -, - 212 

-, - 215 -, - 218 -, - 236 -, - 237 - 

indirect, - 59 -, - 71 -, - 90 -, - 98 -, - 119 -, - 

135 -, - 137 -, - 155 -, - 164 -, - 188 -, - 189 

-, - 191 -, - 192 -, - 193 -, - 194 -, - 195 -, - 

201 -, - 207 -, - 208 -, - 212 -, - 214 -, - 215 

-, - 218 -, - 219 -, - 224 -, - 228 -, - 229 -, - 

230 -, - 232 -, - 236 -, - 237 -, - 240 -, - 242 

- 

endangered species, - 13 -, - 18 -, - 165 -, - 166 

-, - 177 -, - 178 -, - 179 -, - 180 -, - 182 -, - 

189 -, - 197 -, - 198 -, - 201 -, - 207 -, - 243 - 

environmental impact statement (EIS), i, vii, - 

1 -, - 8 -, - 9 -, - 11 -, - 12 -, - 17 -, - 22 -, - 23 

-, - 37 -, - 61 -, - 62 -, - 71 -, - 73 -, - 74 -, - 

76 -, - 77 -, - 78 -, - 81 -, - 82 -, - 86 -, - 90 -, - 

91 -, - 92 -, - 93 -, - 94 -, - 98 -, - 99 -, - 100 -, 

- 102 -, - 108 -, - 109 -, - 110 -, - 111 -, - 112 -

, - 113 -, - 114 -, - 115 -, - 116 -, - 135 -, - 136

-, - 137 -, - 139 -, - 141 -, - 142 -, - 144 -, -

149 -, - 150 -, - 151 -, - 152 -, - 155 -, - 156 -,

- 158 -, - 159 -, - 164 -, - 165 -, - 166 -, - 167 -

, - 168 -, - 169 -, - 170 -, - 172 -, - 173 -, - 174

-, - 177 -, - 179 -, - 180 -, - 198 -, - 200 -, -

201 -, - 202 -, - 206 -, - 219 -, - 223 -, - 225 -,

- 226 -, - 227 -, - 231 -, - 232 -, - 235 -, - 238 -

, - 241 -, - 242 -, - 243 -, - 244 -

Environmental Protection Agency (EPA), x, - 

13 -, - 39 -, - 59 -, - 158 -, - 221 -, - 241 - 

Forest Service Manual (FSM), - 13 -, - 34 -, - 

36 -, - 41 -, - 166 -, - 179 -, - 182 -, - 188 -, - 

198 -, - 200 -, - 214 - 

game management unit (GMU), iv, ix, - 7 -, - 

9 -, - 12 -, - 32 -, - 34 - - 136 -, - 165 -, - 167 -

, - 168 -, - 169 -, - 170 -, - 172 -, - 173 -, - 190 

-, - 192 -, - 193 -, - 194 -, - 204 -, - 205 - 

geographic information system (GIS), - 20 -, - 

106 -, - 167 -, - 177 -, - 223 -, - 227 - 

guide use area (GUA), iii, iv, ix, - 1 -, - 7 -, - 22 

-, - 32 -, - 33 -, - 34 -, - 135 -, - 136 -, - 170 -, 

- 171 -, - 191 -, - 192 -, - 193 -

heritage resources, - 40 -, - 144 -, - 156 - 

interdisciplinary team (IDT), vii, x, - 1 -, - 11 -

, - 13 -, - 25 -, - 27 -, - 28 -, - 43 -, - 59 -, - 

208 -, - 215 -, - 223 - 

irretrievable commitment(s), - 60 - 

land use designation (LUD), - 6 -, - 9 -, - 10 -, - 

16 -, - 17 -, - 21 -, - 27 -, - 72 -, - 73 -, - 102 -

, - 115 -, - 119 -, - 164 -, - 188 -, - 190 -, - 221 

- 

Shoreline II Outfitter/Guide DEIS Chapter 4 - 279 - 
Chapter 4—References and Lists

large group, iii, v, ix, xxvii, - 3 -, - 7 -, - 8 -, - 9 

-, - 17 -, - 22 -, - 35 -, - 41 -, - 70 -, - 108 -, - 

114 -, - 137 -, - 140 -, - 143 -, - 153 -, - 156 -, 

- 157 -, - 165 -, - 199 -, - 211 -, - 217 -

large group area (LGA), iii, v, ix, xxvii, - 3 -, - 

7 -, - 8 -, - 9 -, - 17 -, - 22 -, - 35 -, - 41 -, - 

70 -, - 108 -, - 114 -, - 115 -, - 116 -, - 137 -, - 

138 -, - 139 -, - 140 -, - 142 -, - 143 -, - 150 -, 

- 151 -, - 153 -, - 155 -, - 158 -, - 165 -, - 195 -

, - 199 -, - 211 -, - 217 -, - 242 –

limits of acceptable change (LAC), - 17 -, - 21 

-, - 22 - 

management indicator species (MIS), - 164 -, - 

166 -, - 167 -, - 168 -, - 172 -, - 173 -, - 174 -, 

- 177 -, - 190 -, - 205 -, - 207 -, - 227 -, - 234 -

mitigation, v, x, xi, - 13 -, - 14 -, - 17 -, - 41 -, - 

43 -, - 60 -, - 91 -, - 93 -, - 100 -, - 158 -, - 

163 -, - 164 -, - 192 -, - 197 -, - 206 -, - 208 -, 

- 212 -, - 213 -, - 215 -, - 217 -, - 218 -, - 219 -

, - 222 -, - 227 -, - 233 -, - 238 -, - 239 -, - 240

-, - 243 -, - 244 -

monitoring, iv, v, ix, x, xi, - 6 -, - 8 -, - 9 -, - 14 

-, - 21 -, - 22 -, - 27 -, - 28 -, - 35 -, - 37 -, - 

38 -, - 39 -, - 40 -, - 41 -, - 43 -, - 60 -, - 73 -, - 

74 -, - 77 -, - 78 -, - 85 -, - 86 -, - 91 -, - 93 -, - 

100 -, - 106 -, - 108 -, - 110 -, - 115 -, - 116 -, 

- 117 -, - 137 -, - 156 -, - 157 -, - 163 -, - 164 -

, - 190 -, - 213 -, - 221 -, - 223 -, - 225 -, - 238

-, - 240 -, - 241 -, - 243 -

multiple use, - 193 - 

National Environmental Policy Act (NEPA), 

x, - 1 -, - 2 -, - 12 -, - 13 -, - 14 -, - 19 -, - 21 -

, - 36 -, - 39 -, - 59 -, - 60 -, - 72 -, - 110 -, - 

114 -, - 138 -, - 158 -, - 164 -, - 177 -, - 192 -, 

- 194 -, - 235 -, - 243 -

National Forest Management Act (NFMA), - 

9 -, - 19 -, - 60 - 

National Historic Preservation Act (NHPA), - 

11 -, - 19 -, - 40 -, - 148 -, - 149 -, - 152 -, - 

155 -, - 243 - 

National Marine Fisheries Service (NMFS), - 

13 -, - 174 -, - 175 -, - 177 -, - 178 -, - 179 -, - 

180 -, - 181 -, - 182 -, - 183 -, - 188 -, - 195 -, 

- 196 -, - 200 -, - 222 -, - 227 -, - 228 -, - 238 -

, - 244 -

National Register of Historic Places (NRHP), 

- 40 -, - 148 -, - 150 –

Native American Graves Protection and 

Repatriation Act (NAGPRA), - 19 - 

non-commercial use, - 71 -, - 72 – 

Notice of Intent (NOI), - 11 - 

old-growth forest, - 79 -, - 172 -, - 173 -, - 187 - 

old-growth habitat, - 10 -, - 103 -, - 173 -, - 187 

-, - 188 -, - 201 - 

outfitter/guide, i, iii, iv, v, vi, vii, viii, ix, x, - 1 

-, - 2 -, - 3 -, - 5 -, - 6 -, - 7 -, - 8 -, - 9 -, - 12 -, 

- 14 -, - 15 -, - 16 -, - 17 -, - 18 -, - 21 -, - 22 -

, - 23 -, - 25 -, - 27 -, - 28 -, - 30 -, - 32 -, - 33

-, - 34 -, - 35 -, - 36 -, - 37 -, - 38 -, - 39 -, - 40

-, - 41 -, - 42 -, - 43 -, - 60 -, - 61 -, - 62 -, -

65 -, - 66 -, - 68 -, - 69 -, - 70 -, - 71 -, - 72 -, -

73 -, - 74 -, - 76 -, - 77 -, - 78 -, - 81 -, - 82 -, -

84 -, - 86 -, - 90 -, - 91 -, - 92 -, - 93 -, - 94 -, -

98 -, - 99 -, - 100 -, - 101 -, - 102 -, - 103 -, -

104 -, - 105 -, - 106 -, - 107 -, - 108 -, - 109 -,

- 110 -, - 111 -, - 112 -, - 113 -, - 114 -, - 115 -

, - 116 -, - 117 -, - 118 -, - 119 -, - 122 -, - 123

-, - 124 -, - 127 -, - 128 -, - 131 -, - 132 -, -

135 -, - 136 -, - 137 -, - 138 -, - 139 -, - 141 -,

- 142 -, - 143 -, - 144 -, - 148 -, - 150 -, - 152 -

, - 153 -, - 155 -, - 156 -, - 157 -, - 158 -, - 159

-, - 162 -, - 163 -, - 164 -, - 165 -, - 166 -, -

167 -, - 168 -, - 169 -, - 170 -, - 182 -, - 190 -,

- 192 -, - 196 -, - 198 -, - 199 -, - 200 -, - 201 -

, - 204 -, - 205 -, - 206 -, - 208 -, - 211 -, - 212

-, - 213 -, - 214 -, - 215 -, - 216 -, - 217 -, -

218 -, - 219 -, - 222 -, - 228 -, - 232 -, - 235 -,

- 236 -, - 237 -, - 238 -, - 239 -, - 240 -

outfitting/guiding, - 18 -, - 65 -, - 73 -, - 104 - 

primary use season, - 27 -, - 105 -, - 106 -, - 

107 -, - 117 -, - 119 -, - 122 -, - 124 -, - 127 -, 

- 131 -, - 135 -, - 136 -, - 137 -, - 138 -, - 139 -

productive old-growth, - 166 -, - 187 -, - 199 - 

proposed action, i, iv, v, vi, vii, viii, ix, xxvii, - 

1 -, - 7 -, - 8 -, - 10 -, - 11 -, - 13 -, - 14 -, - 16 

-, - 21 -, - 22 -, - 25 -, - 27 -, - 28 -, - 30 -, - 

38 -, - 43 -, - 61 -, - 72 -, - 76 -, - 77 -, - 90 -, - 

91 -, - 92 -, - 93 -, - 94 -, - 95 -, - 96 -, - 97 -, - 

98 -, - 100 -, - 105 -, - 106 -, - 119 -, - 159 -, - 

160 -, - 164 -, - 166 -, - 174 -, - 198 -, - 200 -, 

- 202 -, - 208 -, - 212 -, - 215 -, - 218 -, - 235 -

, - 236 -, - 238 -

recreation

developed, - 231 -, - 240 - 

dispersed, - 116 -, - 117 -, - 201 -, - 223 -, - 

233 - 

displacement, - 17 -, - 71 -, - 106 -, - 107 -, - 

122 -, - 131 -, - 157 -, - 181 -, - 186 -, - 189 

-, - 191 -, - 193 -, - 194 -, - 233 -, - 239 - 

Chapter 4 - 280 - Shoreline II Outfitter/Guide DEIS
References and Lists—Chapter 4

recreation opportunity spectrum (ROS), vi, - 

6 -, - 16 -, - 27 -, - 28 -, - 39 -, - 102 -, - 103 -

, - 104 -, - 105 -, - 106 -, - 108 -, - 109 -, - 115 

-, - 119 -, - 135 -, - 137 - 

recreation places, vii, - 6 -, - 25 -, - 101 - 

recreation site(s), - 87 -, - 100 -, - 110 -, - 116 -, 

- 199 -, - 200 -, - 241 -, - 243 –

schedule of proposed actions (SOPA), - 10 - 

scoping, v, vi, - 1 -, - 10 -, - 11 -, - 12 -, - 13 -, - 

14 -, - 15 -, - 16 -, - 73 -, - 101 -, - 106 -, - 

159 -, - 190 -, - 206 - 

season

fall, iv, vi, ix, xx, xxvii, - 7 -, - 16 -, - 28 -, - 

32 -, - 55 -, - 116 -, - 135 -, - 136 -, - 170 -, 

- 171 -, - 193 -, - 194 -

spring, v, vi, x, xii, xv, xxvii, - 7 -, - 16 -, - 28 

-, - 32 -, - 42 -, - 46 -, - 49 -, - 71 -, - 103 -, 

- 116 -, - 168 -, - 169 -, - 193 -

summer, xviii, xxvii, - 28 -, - 52 -, - 62 -, - 

63 -, - 65 -, - 67 -, - 71 -, - 86 -, - 103 -, - 

110 -, - 116 -, - 117 -, - 138 -, - 139 -, - 163 

-, - 169 -, - 194 -, - 196 -, - 197 -, - 199 - 

winter, iv, vii, xxiv, xxvii, - 6 -, - 23 -, - 24 -, 

- 28 -, - 59 -, - 76 -, - 103 -, - 104 -, - 158 -,

- 194 -, - 222 -

sensitive species, - 41 -, - 164 -, - 165 -, - 166 -, 

- 174 -, - 177 -, - 179 -, - 181 -, - 182 -, - 183 -

, - 184 -, - 185 -, - 188 -, - 198 -, - 200 -, - 207

-, - 234 -

service day(s), i, iii, iv, v, vi, vii, viii, x, xii, xiv, 

xv, xviii, xx, xxiv, xxvii, - 1 -, - 2 -, - 7 -, - 8 -, 

- 11 -, - 14 -, - 15 -, - 16 -, - 17 -, - 21 -, - 22 -

, - 23 -, - 24 -, - 25 -, - 27 -, - 29 -, - 30 -, - 31

-, - 32 -, - 33 -, - 34 -, - 36 -, - 39 -, - 40 -, - 42

-, - 44 -, - 45 -, - 46 -, - 48 -, - 49 -, - 52 -, - 55

-, - 59 -, - 60 -, - 71 -, - 72 -, - 73 -, - 87 -, -

92 -, - 104 -, - 105 -, - 107 -, - 110 -, - 111 -, -

112 -, - 113 -, - 114 -, - 135 -, - 137 -, - 138 -,

- 139 -, - 158 -, - 159 -, - 160 -, - 163 -, - 165 -

, - 167 -, - 170 -, - 190 -, - 191 -, - 193 -, - 195

-, - 196 -, - 197 -, - 199 -, - 201 -, - 206 -, -

208 -, - 211 -, - 212 -, - 213 -, - 215 -, - 217 -,

- 218 -, - 219 -, - 224 -, - 232 -, - 236 -, - 237 -

significant issue(s), v, xxvii, - 1 -, - 9 -, - 10 -, - 

13 -, - 14 -, - 22 -, - 73 -, - 86 -, - 101 - 

special interest area, - 10 -, - 103 - 

stand, - 187 -, - 195 -, - 196 - 

State Historic Preservation Officer (SHPO), - 

12 -, - 149 -, - 155 -, - 243 - 

threatened species, - 180 -, - 182 - 

Tongass Land and Resource Management 

Plan (TLMP), iii, vi, vii, x, - 2 -, - 6 -, - 9 -, - 

10 -, - 13 -, - 14 -, - 16 -, - 19 -, - 21 -, - 25 -, 

- 27 -, - 28 -, - 38 -, - 39 -, - 41 -, - 43 -, - 59 -

, - 60 -, - 61 -, - 73 -, - 77 -, - 101 -, - 102 -, -

103 -, - 104 -, - 105 -, - 106 -, - 107 -, - 109 -,

- 115 -, - 119 -, - 124 -, - 127 -, - 131 -, - 140 -

, - 153 -, - 159 -, - 164 -, - 165 -, - 166 -, - 167 

-, - 168 -, - 169 -, - 172 -, - 173 -, - 174 -, - 

175 -, - 176 -, - 177 -, - 182 -, - 183 -, - 184 -, 

- 185 -, - 186 -, - 188 -, - 195 -, - 196 -, - 197 -

, - 199 -, - 201 -, - 202 -, - 203 -, - 206 -, - 207

-, - 213 -, - 214 -, - 219 -, - 220 -, - 221 -, -

225 -, - 227 -, - 228 -, - 229 -, - 232 -, - 233 -,

- 235 -, - 236 -, - 237 -, - 238 -, - 243 -

Tongass Timber Reform Act (TTRA), - 6 -, - 

19 -, - 73 -, - 80 - 

tour(s), vi, - 16 -, - 65 -, - 70 -, - 81 -, - 82 -, - 

101 -, - 110 -, - 111 -, - 115 -, - 116 -, - 142 -, 

- 146 -, - 147 -, - 155 -, - 156 -, - 168 -, - 169 -

, - 174 -, - 176 -, - 189 -, - 193 -, - 196 -, - 200

-, - 201 -, - 223 -

United States Fish and Wildlife Service (US 

DI FWS), - 167 -, - 176 -, - 177 -, - 178 -, - 

179 -, - 180 -, - 183 -, - 184 -, - 185 -, - 186 -, 

- 187 -

use area (UA), iv, v, vi, vii, viii, ix, x, xiv, xv, 

xviii, xx, xxiv, - 3 -, - 6 -, - 7 -, - 8 -, - 9 -, - 16 

-, - 17 -, - 21 -, - 22 -, - 23 -, - 25 -, - 27 -, - 

28 -, - 29 -, - 31 -, - 32 -, - 33 -, - 35 -, - 36 -, - 

37 -, - 38 -, - 39 -, - 40 -, - 41 -, - 42 -, - 43 -, - 

46 -, - 48 -, - 49 -, - 52 -, - 55 -, - 59 -, - 60 -, 

- 71 -, - 72 -, - 76 -, - 79 -, - 80 -, - 81 -, - 100

-, - 103 -, - 104 -, - 105 -, - 106 -, - 107 -, -

110 -, - 111 -, - 112 -, - 113 -, - 114 -, - 115 -,

- 116 -, - 117 -, - 119 -, - 122 -, - 124 -, - 127 -

, - 131 -, - 135 -, - 136 -, - 137 -, - 138 -, - 139

-, - 141 -, - 150 -, - 151 -, - 152 -, - 155 -, -

156 -, - 158 -, - 159 -, - 160 -, - 165 -, - 170 -,

- 183 -, - 190 -, - 191 -, - 192 -, - 193 -, - 195 -

, - 196 -, - 198 -, - 199 -, - 203 -, - 205 -, - 206

-, - 210 -, - 211 -, - 212 -, - 213 -, - 214 -, -

216 -, - 218 -, - 219 -, - 220 -, - 222 -, - 223 -,

- 224 -, - 232 -, - 236 -, - 237 -, - 238 -, - 239 -

, - 240 -

watershed, - 10 -, - 103 -, - 165 -, - 221 -, - 224 

-, - 233 -, - 237 - 

wetland(s), - 18 -, - 173 -, - 174 -, - 221 -, - 222 

-, - 238 -, - 239 -, - 240 -, - 241 -, - 242 -, - 

243 - 

Shoreline II Outfitter/Guide DEIS Chapter 4 - 281 - 
Chapter 4—References and Lists

wilderness, v, vi, viii, xiv, xvii, xx, xxiii, xxvi, 

xxvii, - 2 -, - 4 -, - 6 -, - 8 -, - 10 -, - 11 -, - 15 

-, - 16 -, - 17 -, - 19 -, - 24 -, - 26 -, - 27 -, - 28 

-, - 30 -, - 32 -, - 39 -, - 48 -, - 51 -, - 54 -, - 58 

-, - 61 -, - 72 -, - 73 -, - 74 -, - 75 -, - 76 -, - 77 

-, - 78 -, - 79 -, - 80 -, - 81 -, - 82 -, - 83 -, - 84 

-, - 85 -, - 86 -, - 87 -, - 88 -, - 89 -, - 90 -, - 91 

-, - 92 -, - 93 -, - 94 -, - 95 -, - 96 -, - 97 -, - 98 

-, - 99 -, - 100 -, - 101 -, - 103 -, - 109 -, - 115 

-, - 117 -, - 120 -, - 146 -, - 155 -, - 158 -, - 

159 -, - 162 -, - 163 -, - 190 -, - 207 -, - 214 - 

wildlife analysis area (WAA), - 203 -

Chapter 4 - 282 - Shoreline II Outfitter/Guide DEIS
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